^333 


Duke   University   Libraries 

Report  of  the  P 
Conf  Pam  #333 

iliilllllljiiililil 


SENATE,  February  10,  1865.— Ordered  to  be  printed. 


REPORT 

'      9?   THE 

POSTMAsiEBT-lT&NEIlAL 

TO   THE   PRESIDENT, 

April  29,  1861. 


Post-Office  Department, 
3Iontgomery^  Ala.,  April  ..9th,  1861. 

To  THE  President  ; 

Sir : — I  have  the  honor  to  submit  the  following  statement  of 
the  condition  of  the  Post-Office  Department. 

After  my  appointment  as  Postmaster-General  on  the  6th  day 
of  March  last,  offices  and  furniture  for  the  use  of  the  Depart- 
ment had  to  be  procured. 

The  legislation  of  Congress  contemplated  the  organization  of 
the  Department  on  the  same  general  plan  and  principles,  which 
was  found  in  operation  under  the  authority  of  the  Government 
of  the  United  States,  and  provisions  were  adopted  to  enable  this 
Department,  in  a  given  contingency,  to  continue  in  service  such 
postmasters,  contractors  and  others,  employed  in  the  postal  ser- 
vice as  had  been  engaged  in  that  service  under  that  Government. 

To  organize  the  Department  so  as  to  carry  out  the  purposes 
had  in  view  by  Congress  ;  to  ensure  the  continuance  of  our  postal 
facilities  in  such  manner  as  to  meet  the  public  necessities  ;  to 
avoid  the  suspension  of  the  postal  service,  until  a  new  system 
could  be  adopted  and  put  in  operation,  and  to  prevent  a  serious 
shock  to  the  public  interests  by  a  temporary  suspension  of  mail 
service,  were  the  first  questions  to  be  considered  by  the  Depart- 
ment. And  it  became  necessary  to  obtain  much  information 
relating  to  the  organization  of  the  Department  and  its  opera- 


2 

tions.  This  necessarily  produced  some  delay.  But,  immediately 
after  my  appointment,  I  adtipted  the  most  active  measures  to 
obtain  such  inform-iiion,  and  to  procure  the  services  of  such 
persons  as  would  enable  me  to  organize  the  Department  at  the 
earliest  day  practic-ible. 

The  necessary  blanks  and  forms,  (other  than  the  blanks  for 
the  (juartcrly  returns  of  postmasters,)  numbt'rinf:^  more  than  two 
huniired,  have  been  prepared  for  the  use  of  the  Department,  and 
much  time  and  labor  have  been  employed  in  obtaining  and  pre- 
piirin<j;  suitable  books.  These  books  are  now  reaily,  and  the 
Department  so  far  advanced  with  its  organization  as  to  be  able 
to  assume  the  entire  direction  of  our  postal  affairs.  The  only 
embarrassment  that  would  be  experienced  in  taking  charge  of 
the  service  at  this  time,  wouhl  be  the  want  of  the  blanks  for  the 
quarterly  returns  of  postmasters,  and  of  postage  stamj)S  and 
stamped  envelopes.  Advertisements  of  proposals  for  contracts 
for  furnishing  the^e  supplies  have  been' made,  and  contracts  for 
them  are  to  be  closed  on  the  first  day  of  May.  Until  supplies 
can  be  delivered  under  these  contracts,  the  postages  can  be  paid 
in  money  and  the  Department  can  make  temporary  arrange- 
ments for  supplying  such  officers  as  arc  without  blanks. 

All  the  mail  routes  m  the  Confederate  States,  with  the  names 
of  the  post-offices  supplied  by  them,  and  the  revenues  derived 
from  each  office,  are  registered  in  the  contract  books.  The  con- 
tract prices  of  carrying  the  mails  on  all  the  routes  in  the  States 
of  Alabama,  Louisiana,  Mississippi  and  Texas,  are  also  regis- 
tered on  the  books  for  those  States.  And  it  is  expected  the  De- 
partment will  soon  obtain  the  information  necessary  to  enable 
it  to  make  the  like  entries  in  the  books  which  relate  to  the  States 
of  Florida,  Georgia  and  South  Carolina. 

The  names  of  all  the  post-offices  in  the  Confederate  States, 
alphabetically  arranged,  and  also  arranged  by  States  and  coun- 
ties, have  been  registered  in  the  books  of  the  Appointment 
Bureau.  And  the  necessary  books,  forms  and  circulars  for  the 
Inspection  Office,  tenrporarily  jdaced  under  the  direction  of  the 
Appointment  Bureau,  have  been  prepared. 

The  necessary  hooks  have  also  been  prepared  for  the  use  of 
the  Finance  Bureau. 

A  draftsman  has  been  employed,  and  is  engaged  in  the  pre- 
paration of  the  maps  necessary  for  the  use  of  the  Department. 
This  work  must  necessarily  be  somewhat  delayed  in  its  comple- 
tion, until  the  requisite  data  can  be  obtained  to  fix  the  location 
of  the  minor  offices.  The  necessary  correspondence  will  soon  be 
commenced  to  enable  the  Department  to  obtain  that  information. 

I  have  directed  the  classification  and  arrangement  of  the  duties 
of  the  several  Bureaus  of  the  Depaitment,  with  a  view  to  the 
harmony  and  efficiency  of  its  operations,  and  for  the  purpose  of 


exhibiting  a  clear  and  concise  statement  of  the  number  and 
character  of  the  clerical  force  required  by  the  Department. — 
This  duty  has  been  performed  by  Henry  St.  Geo.  Onutt,  Chief 
of  the  Contract  Bureau,  in  a  manner  which  evinces  his  full  and 
accurate  knowledge  of  its  varied  and  extensive  machinery.  His 
report  is  hereto  annexed,  (marked  Appendix  A.)  And  I  take 
pleasure  in  saying  that  this  gentleman,  and  Benj.  N.  Clements, 
Chief  of  the  Appointment  Bureau,  have  brought  to  the  service 
of  the  Department  an  amount  and  character  of  information  and 
experience,  and  a  zeal  and  energy  in  the  discharge  of  all  the 
duties  assigned  to  them,  which  have  been  especially  servicable  in 
its  organization. 

It  will  be  seen  that  a  force  of  eighteen  clerks,  in  addition  to 
the  twenty  heretofore  allowed  by  Congress,  will  be  necessary  to 
carry  on  the  business  of  the  Department;  and  one  watchman  will 
be  necessary  to  the  security  of  the  building. 

The  principal  clerk  in  each  of  the  Bureaus — three  in  all — 
should  receive  a  salary  of  fourteen  hundred  dollars.  The  im- 
portance and  difficulty  of  the  service  to  be  performed,  and  the 
consequent  necessity  for  the  employment  of  the  best  talents,  ex- 
perience and  business  capacity  which  can  be  commanded  for 
this  service,  and  the  fact  that  the  lowest  grade  of  pay  allowed 
to  the  clerks  of  the  Department  is  inadequate  to  the  support  of 
such  persons  as  have  families — and  the  further  fact  that  persons, 
qualified  for  the  proper  performance  of  these  duties,  can  com- 
mand much  higher  compensation  for  their  services  in  other  em- 
ployments, render  it  proper — looking  to  the  good  of  the  service 
— that  ten  of  these  clerks  be  allowed  salaries  of  twelve  hundred 
dollars,  and  the  remaining  five  may  be  allowed  one  thousand 
dollars  per  annum,  each.  I  must  also  ask  that  there  be  alljwed 
a  principal  clerk  for  the  Inspection  Office,  with  a  salary  of  four- 
teen hundred  dollars. 

This  increase  of  force  is  necessary  to  the  success  of  the  De- 
partment in  conducting  the  postal  affairs  of  the  seven  States 
now  composing  the  Confederate  States;  and  a  corresponding  in- 
crease of  the  clerical  force  of  the  Department  will  be  required 
as  the  States,  in  the  march  of  transpiring  events,  separate  them- 
selves from  the  Government  of  the  United  States  and  unite 
■with  the  Confederate  States. 

I  must  call  attention  to  the  fact  that,  while  the  Heads  of  Bu- 
reaus in  other  Departments  of  the  Government  are  allowed  sala- 
ries of  three  tiiousand  dollars,  the  Heads  of  Bureaus  in  this  De- 
partment are  allowed  but  twenty-five  hundred.  It  is  unquestion- 
able that  the  Heads  of  Bureaus  in  this  Department  are  required 
to  perform  as  much  labor  as  in  any  other,  and  much  more  than 
most  of  the  other  Heads  of  Bureaus.  They  are  also  charged 
with  duties,  at  once  the  most  delicate  and  responsible,  and  must 


be  constantly  engaged  in  investigating  and  disponing  of  questions 
■which  affect,  in  an  important  degree,  both  the  public  and  private 
interests.  And  to  give  thorn  a  just  compensation  for  their  ser- 
yices,  and  place  them  and  this  Department  on  an  equal  footing  with 
the  others,  they  should  receive  salaries  of  three  thousand  dollars. 

It  will  also  be  necessary  for  Congress  to  provide  an  Auditor 
of  the  Treasury  for  the  Post  C)ffice  Department,  and  to  furnish 
for  his  Bureau  a  clerical  force.  I  refer  you  to  that  part  of  the 
report  of  the  Chief  of  the  Contract  Bureau,  herewith  submitted, 
■which  shows  the  number  and  character  of  the  force  employed  in 
the  corresponding  Bureau  at  Washington,  (the  Sixth  Auditor's 
OflRce,)  and  tho  number  and  character  of  the  force  required  to 
audit  and  settle  the  accounts  of  this  Department. 

Your  attention  is  also  respectfully  called  to  the  report  of  the 
Chief  of  the  Appointment  Bureau,  hereto  attached,  (marked 
Appendix  B;)  and  to  that  of  the  Chief  of  the  Finance  Bureau, 
also  hereto  attached,  (marked  Appendix  C  ) 

The  Department  has  advertised  for  bids  for  contracts  for  the 
supply  of  Mail-Bags,  Post-Of!ice  Blanks  and  paper  for  the  same, 
wrapping  paper,  twine  and  sealing  wax,  circular  marking  and 
rating  stamps,  postage  stamps  and  stamped  envelopes,  and  for 
mail  locks  and  keys. 

These  bids  are  to  be  made  by  the  first  day  of  May,  and  it  is 
expecre(i  the  Department  will  be  able  to  obtain  contracts  for  the 
furnishing  of  these  supplies  at  an  early  day. 

A  contract  has  been  made  for  the  printing  of  all  the  blanks 
to  be  used  by  the  Department,  other  than  those  for  quarterly  re- 
turns, on  favorable  terms,  a  portion  of  them  to  be  delivered  on 
Friday  the  '26th  April  inst.,  and  the  remainder  at  such  times, 
and  in  such  quantities,  as  shall  meet  the  necessities  of  the  service. 
For  full  and  accurate  statements  as  to  these  matters,  you  are 
respectfully  referred  to  the  Beport  of  the  Chief  of  the  Contract 
Bureau. 

Soon  after  entering  on  my  duties,  I  received  letters  of  inquiry 
from  postmasters,  mail  contractors  and  others,  as  to  whether  they 
■were  to  continue  to  act  under  their  appointments  and  contracts 
as  the  officers  and  contractors  of  the  Government  of  the  United 
States;  or  were  to  hold  themselves  responsible  to  the  Govern- 
ment of  the  Confederate  States.  In  reply  to  the  inquiries  of 
contractors,  I  prepared  and  sent  them  circular  letter  No.  2,  a 
copy  of  which  is  hereto  annexed,  (marked  Appendix  D,)  advis- 
ing them  that  this  Government  would  not  interfere  with  existing 
contracts  between  the  contractors  and  the  Government  of  the 
United  States,  until  it  should  assume  the  entire  control  of  its 
postal  affairs,  and  that  it  would  not  assume  any  liability  for  the 
contracts  of  the  United  States.  In  answer  to  postmasters,  cir- 
cular  letter   No.  3,  a  copy   of  which   is   also  hereto   annexed, 


(marked  Appendix  E,)  was  prepared  and  sent  to  all  the  post' 
masters  in  the  Confederate  States,  directing  them  to  continue 
to  perform  their  duties,  render  their  accounts,  and  pay  over  all 
moneys  to  the  Government  of  the  United  States  which  might 
come  into  their  hands  as  postmasters,  until  this  Department  should 
assume  the  entire  control  of  the  service. 

These  circulars  contain  a  statement  of  the  reasons  which  in- 
duced the  Department  to  issue  them.  ^ 

It  was  hoped  this  course  would  have  beneficial  effects,  by  re- 
moving all  doubts  as  to  the  duty,  for  the  time  being,  of  those 
engaged  in  the  postal  service,  and  by  showing  to  tho  Government 
at  Washington,  that  so  long  as  it  continued  to  hold  itself  liable 
for  the  mail  service  in  the  Confederate  States,  it  should  receive 
all  the  revenues  derived  from  that  service.  It  was  supposed,  too, 
that  it  was  greatly  to  the  interest  of  the  people  of  that  country, 
as  well  as  to  the  interest  of  those  of  our  own,  to  avoid  a  sudden 
suspension  of  the  postal  communication  between  the  people  of 
the  two  countries,  and  to  avoid  being  brought  at  once  to  practical 
non-intercourse,  which,  it  was  supposed,  would  occur  if  this  De- 
partment had  been  required  to  assume  the  control  of  the  service 
before  its  organization,  and  before  any  time  had  been  given  to 
provide  the  means  of  passing  the  mails  across  the  frontier.  And 
when  that  policy  was  determined  on,  it  was  not  known  that  active 
hostilities  would  occur  ;  but  it  was  then  supposed  to  be  still  possi- 
ble that  our  separation  from  the  United  States  might  be  peacea- 
bly effected,  and  that  all  questions  relating  to  the  public  property 
and  to  pecuniary  liability  between  the  two  countries,  might  be 
settled  by  negotiations  on  terms  of  equality. 

While  that  Government  has  not  yet  suspended  the  mail  service 
in  this,  it  is  yet  believed  that  its  control  of  the  service,  for  some 
time  past,  has  been  used  more  to  annoy  and  harrass  the  mail  con- 
tractors and  postmasters  in  the  Confederate  States,  than  for  the 
purpose  of  affording  mail  facilities,  and  with  a  view  of  rendering 
them  discontented,  if  possible,  with  the  existing  political  c  mdi- 
tion  of  the  country.  I  have  no  power,  under  existing  laws,  to 
assume  control  of  our  postal  service  before  the  suspension  of  it 
by  the  United  States.  If  I  had  possessed  that  power,  I  should, 
before  this,  have  exercised  it.  And  now  that  active  hostilities 
have  commenced,  and  as  we  need  not  anticipate  being  separated 
from  our  sister  Southern  States,  or  having  our  correspondence 
with  them  interrupted  for  any  great  length  of  time,  by  being 
under  different  governments,  I  recommend  that  the  Congress 
give  this  Department  authority  at  once  to  assume  the  control  of 
our  postal  service,  and  that  it  forbid  the  continuance  of  such  ser- 
vice under  the  authority  of  the  United  States. 

As  soon  as  the  condition  of  the  country  will  permit  it,  the 
necessary  steps  will  be  taken  to  put  a  system  of  foreign  and  in- 
ternational postal  service  in  operation. 


I  must  also  ask  for  additional  legislation  on  the  following 
sulijects : 

1.  It  is  deemed  advisable  to  ask  Congress  to  invest  the  Chief 
of  the  Contract  Bureau  with  authority  to  exercise  the  powers 
and  perform  the  duties  of  the  Postmaster  General,  temporarily, 
in  case  of  his  death,  resignation  or  absence. 

_.  To  confer  the  franking  privilege  on  the  Chiefs  of  the  Con- 
tract, Apjjointment  and  Finance  Bureaus,  so  far  as  to  authorize 
them  to  send  and  receive  packages,  relating  exclusively  to  the 
duties  of  their  offices,  free  of  postage 

8.  To  authorize  tlie  use  of  ten-cent  stamps  and  stamped  envel- 
opes'^—no  stamps  of  that  denomination  having  been  provided  for 
by  the  act  authorizing  the  use  of  two,  five  and  twenty-cent  stamps 
and  stamped  envelope^. 

4.  I  would,  also,  with  great  respect  for,  and  deference  to,  the 
recent  action  of  the  Congress,  suggest  some  chunges  in  the  act 
of  the  28d  February  last,  "  to  prescribe  the  rates  of  postage." 
Under  that  act,  the  postage  on  newspapers  is  :  on  those  not  ex- 
ceeding three  ounces  in  weight,  pul)lished  weekly,  within  the 
limits  of  the  State  where  published,  six  and  one-half  cents  per 
quarter ;  on  papers  published  semi-weekly,  double  that  rate ;  on 
papers  published  thrice  a  week,  treble  tliat  rate;  and  on  pafters 
published  daily,  six  times  that  rate;  and  the  postage  on  all  news- 
pa[)ers  without  the  State  where  published,  shall  be  charged  with 
double  those  rates. 

In  lieu  of  this,  I  would  suggest  that  the  postage  on  newspa- 
pers be  made  uniform,  without  reference  to  State  boundaries  or 
the  distance  they  may  be  carrie<l,  and  that  there  should  be  paid 
on  weekly  newspapers,  not  weighing  more  than  three  ounces,  ten 
cents  per  quarter  postage  ;  double  that  amount  on  semi-weekly ; 
treble  that  amount  on  tri-weekly;  and  six  times  that  amount  on 
daily  papers.  This  would  not,  probably,  operate  injuriously  on 
the  circulation  of  local  papers,  and,  as  a  very  large  majority  of 
papers  are  delivered  within  short  distances  of  the  place  of  pub- 
lication, it  would  increase  the  revenues  of  the  Department.  And 
there  is  an  apparent  unfairness  in  establishing  an  arbitrary  in- 
crease of  postage  against  papers  passing  a  State  boundary,  how- 
ever short  the  distance  they  are  to  be  carried,  and  allowing  others 
"wiiliin  the  State  to  be  carried  greatly  further  for  one-half  the 
amount.  The  adoption  of  a  uniform  rate  of  postage,  and  of  the 
regular  divisions  of  the  decimal  currency,  and  such  rates  as  to 
avoid  fractions  of  cents,  would  be  most  convenient  to  those  who 
pay  the  postage,  and  would  render  the  keeping  of  the  accounts 
of  newspaper- postage  more  simple  and  less  laborious,  both  in  the 
local  post-offices  and  in  this  Department. 

6.  1  would  also  recommend  the  abolishing  of  the  franking 
privilege  allowed  by  that  act  to   newspaper  exchanges.     This 


privilege  was,  no  doubt,  allowed  on  the  supposition  that  it  confers 
a  favor  on  the  publishers  of  papers  ;  and  this  may,  in  some  in- 
stances, be  the.  Ciiso ;  but,  in  many  instances,  it  works  hardship 
and  loss  to  the  publishers,  and  a  very  respectable  number  of  the 
publishers  of  newspapers  would  gladly  see  the  free  exchange  of 
papers  abolished.  The  system  of  exchanging  newspapers  on 
equal  terms,  without  reference  to  the  value  of  the  papers,  is 
neither  just  nor  equitable.  It  may  be  said  they  are  not  com- 
pelled to  exchange,  and  may  refuse  to  do  so  if  they  will.  While 
this  is  so  as  a  question  of  right  and  privilege,  it  can  hardly  bo 
said  to  be  practically  tuue.  One  of  the  evil  effects  of  the  system 
is  to  load  the  m^ils  with  exchanges,  a  large  portion  of  which  are 
sent  as  a  matter  of  grace  without  an  equival^-nt  return,  and 
probablj'  an  equal  number  of  which  are  not  opened  at  the  office 
to  which  they  are  ad<lressed.  And  as  a  matter  of  principle  and 
right,  we  should  regard  the  publishing  of  newspapers  as  a  branch 
of  business  which  has  no  greater  title  to  be  conducted  in  part  at 
public  expense,  than  any  other  branch  of  industry.  The  spirit 
and  letter  of  the  Constitution,  conforming  to  the  plainest  princi- 
ple of  right,  reject  the  idea  that  there  should  be  any  legal  dis- 
crimination for  or  against  any  branch  of  industry.  The  tree  ex- 
change of  newspapers  imposes  a  very  heavy  burden  on  the  De- 
partment, by  increasing  the  weight  of  the  mails,  and  greatly  re- 
duces the  revenues. 

ti.  I  would  also  recommend  a  change  of  the  rates  of  postage 
on  periodicals.  By  the  act  above  referred  to,  the  postage  on  the 
regular  numbers  of  a  periodical,  not  exceeding  one  and  a  half 
ounces  and  published  monthly,  within  the  State  where  published, 
shall  be  three  cents  per  quarter ;  if  published  semi-monthly, 
double  that  rate ;  and  for  every  additional  ounce  or  fraction  of 
an  ounce,  double  the  foregoing  rates  shall  be  charged  ;  and  pe- 
riodicals published  quarterly  or  bi-monthly,  shiill  be  charged  one 
cent  an  ounce;  and  the  postage  on  all  periodicals  without  the 
State  where  published,  shall  be  double  the  above  specified  rates. 

In  lieu  of  these  rates,  I  recommend  that  the  rates  of  postages 
on  periodicals  shall  be  made  uniform  whenever  sent  within  the 
Confederate  States ;  and  that  the  postage  on  a  regular  number 
of  a  periodical  not  exceeding  one  and  a  half  ounces  in. weight, 
and  published  monthly,  shall  be  five  cents  per  quarter;  if  pub- 
lished semi-monthly,  double  that  rate;  and  for  every  additional 
ounce  or  fraction  of  an  ounce,  five  cents  additional  shall  be 
charged;  and  that  on  periodicals  published  quarterly  or  bi- 
monthly, the  postage  should  be  two  cents  per  ounce.  It  is  be- 
lieved these  rates  would  tend  to  increase  the  circulation  of  this 
class  of  literature,  and  would,  probably,  yield  an  increase  of 
revenue  to  the  Department,  and  that  it  is  more  equitable,  and 
would  be  more  satisfactory  than  the  rates  now  established. 


8 

7.  By  the  act  above  referred  to,  the  postage  on  sealed  pack- 
ages, other  than  printed  or  written  matter,  is  charged  at  double 
the  rates  of  postage  on  letters.  The  rate  of  letter  postage  is 
deemed  sufficient  to  remunerate  the  Department  for  their  trans- 
mission. A  policy  which  would  increase  the  amount  of  matter 
carried  at  the  rates  of  letter-postage,  will,  at  present  rates,  cor- 
respondingly increase  the  revenues  of  the  Department  and  bene- 
fit the  service.  Any  policy  which  would  reduce  the  amount  of 
matter  carried  at  the  rates  of  letter-postage,  would,  by  the 
same  rule,  reduce  the  receipts  of  the  Department  and  impair  the 
efficiency  of  tiie  service.  No  substantial  reason  is  perceived  why 
the  mails  should  not  be  opened  to  all  matter  which  wouhl  pay  as 
high  rates  of  postage  as  letters.  The  carrying  of  such  packages 
at  such  rates,  would  increase  the  usefulness  of  the  service,  and 
furnish  a  means  of  enabling  persons  to  transmit  small  and  valua- 
ble packages,  which  would,  in  most  instances,  be  excluded  by  im- 
posing on  them  double  the  rates  of  letter-postage.  The  Depart- 
ment is 'fully  protected  against  frauds  by  the  imposition  of 
the  highest  rates  of  postage  on  those  packages,  when  they  are 
charged  at  the  rates  of  letter-postage,  and  the  Government 
assumes  no  additional  responsibility  for  their  transmission  through 
the  mails. 

8.  To  authorize  the  Postmaster-General  to  curtail  and  discon- 
tinue mail-service  under  such  limitations  as  may  be  thought  wise, 
where  such  discontinuance  or  curtailment  is  necessary  to  secure 
due  economy  in  the  service.  This  power  has  been  exercised  un- 
der existing  legislation,  but  is  not  specifically  conferred  by  any 
act  of  Congress.  The  authority  for  doing  so  rests  on  the  terms 
which  are  embodied  in  all  contracts;  and  this  power  will  have  to 
be  employed  frequently,  until  the  cost  of  the  present  service  shall 
be  reduced  to  a  point  not  exceeding  too  greatly  the  revenues  of 
the  Department. 

In  this  connection.  I  should  say  that  it  is  not  deemed  advisable 
at  this  time  to  re-let  the  mail  service  for  the  Confederate  States; 
but  it  is  thought  better  to  continue  existing  contracts  whenever 
it  is  agreeable  to  the  contractors.  The  reasons  for  this  are  that 
it  may  be  doubtful  whether  contracts  could  now  be  made  extend- 
ing beyond  the  duration  of  the  Provisional  Government ;  and  to 
let  them  for  a  time  not  extending  beyond  that,  would  probably 
increase,  rather  than  diminish,  the  cost  of  the  service  for  such 
period.  But  by  waiting  until  the  Permanent  Government  shall 
go  into  operation  to  let  new  contracts,  the  Department  will  have 
gained  time  to  thoroughly  examine  the  present  schedules  of  mail 
routes,  and  to  re-adjust  them,  so  as  to  greatly  abridge  the  present 
expense.  It  would  be  difficult,  if  not  impossible,  to  do  this  in  a 
satisfactory  manner  in  time  to  make  new  contracts  this  summer ; 
and  if  other  States  stiould  be  added  to  the  Confederacy  during 


the  existence  of  the  Provisional  Government,  which  is  probable, 
this  course  will  give  the  Department  more  time  and  better  oppor- 
tunity to  arrange  s;»tisfactorily  the  whole  service.  And  if  the 
power  be  given  to  discontinue  and  curtail  the  service  in  proper 
cases,  the  expense  of  the  service  can  be  greatly  reduced  during 
the  year  without  re-letting  the  contracts.  A  thorough  examina- 
tion of  the  service  of  the  various  States  is  now  being  made  by 
the  Department,  for  the  purpose  of  ascertaining  what  routes  may 
be  discontinued,  and  what  curtailed  with  propriety,  and  also  for 
ascertaining  the  nui^ber  of  routes,  the  revenues  of  which  do  not 
equal  one-third  of  their  cost.  This  examination,  so  far  as  it  has 
gone,  shows  that  there  are  many  of  these  unproductive  routes, 
and  it  cannot  be  doubted  that  a  proper  regard  for  economy,  and 
in  some  cases,  even  for  propriety,  will  require  some  of  them  to 
be  wholly  discontinued,  and  many  others  to  be  curtailed  to  a  less 
expensive  service.  This  Report,  embracing  the  contracts  in  the 
States  of  Alabama,  Louisiana,  Mississippi  and  Texas,  is  herewith 
submitted,  (marked  Appendix  F.)  A  similar  report  cannot  now 
be  made  for  the  States  of  Flurida,  Georgia  and  South  Carolina, 
for  the  want  of  present  information  of  the  cost  of  the  service  in 
those  States. 

When  I  submitted  my  hastily  drawn  estimates  of  the  15th  of 
March,  it  was  supposed  the  expense  of  the  service  might  be 
reduced  from  the  sum  of  two  millions  eight  hundred  and  seventy- 
nine  thousand  five  hundred  and  thirty  dollars  and  seventy-nine 
cents,  ($2,879,530.79) — the  cost  of  the  service  for  the  fiscal 
year  ending  June  30th,  18b0 — to  one  million  seven  hundred  and 
twenty-seven  thousand  two  hundred  and  eighteen  dollars  and 
forty-nine  cents,  ($1,727,218.49,)  for  the  year  ending  March  1st, 
1862  ;  making  a  reduction  of  one  million  one  hundred  and  fifty- 
two  thousand  three  hundred  and  twelve  dollars  and  twenty-eight 
cents,  ($1,152,312.28.) 

The  grounds  on  which  it  was  supposed  this  deduction  could  be 
made  are  set  forth  in  the  statement  accompanying  those  estimates, 
as  follows : 

"  In  considering  the  means  of  balancing  the  receipts  and 
expenditures  for  the  current  year,  and  overcoming  the  excess  of 
expenditure  of  last  year,  which  amounts  to  $1,941,425.35,  I 
have  assumed  that  the  cost  of  transportation  may  be  reduced  by 
discontinuing  unnecessary  routes,  by  reducing  the  number  of 
trips,  by  the  reduction  of  the  weight  of  mail-matter  resulting 
from  the  abolition  of  the  franking  privilege,  by  letting  out  all 
the  routes  or  star-bids,  and  by  shortening  long  routes  so  as  to 
secure  local  competition  in  bids  for  contracts,  forty  per  cent,  on 
the  aggregate  cost." 

It  was  then  supposed  the  schedules  of  routes  might  be 
examined  and  new  schedules  arranged,  so  as  to  let  the  contracts 


10 

on  all  the  routes,  other  than  railroad  and  steamboat  routes,  on 
the  "star-bid"  system,  in  time  to  produce  a  great  reduction  of 
expenditure  during  tlie  cunoJit  year.  But  the  difficulties  nnd 
delavs  which  must  necessarily  attend  a  re-arranpement  of  the 
Bchednle  of  routes,  growing  out  ot  the  want  of  necessary  informa- 
tion and  from  the  lapse  of  time  which  will  be  requireil  to  got  the 
required  information  by  correspondence,  and  the  great  amount  of 
labor  which  will  be  required  in  arranging  the  schedules  after 
that  iiifortnation  is  obtained,  together  with  the  fact  that  the 
Department  has  not  been  able  to  obtain  sugh  nia|)s  as  are  indis- 
pensably necessary  to  a  reliable  and  satisfactory  arrangement  of 
these  schedules,  and  that  a  very  general  and  extensive  corres- 
pondence will  be  necessary  through  all  the  States  to  obtain  the 
means  of  preparing  these  maps,  added  to  the  reasons  above  sta- 
ted, and  the  doubt  as  to  my  authority  to  make  contracts  extend- 
ing beyond  the  duration  of  the  Provisional  (jIoverninei\t,  and  the 
supposition  that  contracts  made  for  so  short  a  period  of  time  as 
that  between  this  and  its  termination  would  be  likely  to  increase, 
rather  than  diminish,  the  cost  of  the  service,  has  induced  me  to 
recommend  the  continuance  of  existing  contracts  until  such  time 
as  proper  schedules  can  be  prepared  and  advertised,  as  required 
by  law,  and  to  ask  authority  to  abolish  and  curtail  the  present 
service  whenever  it  can  be  done  with  propriety.  But,  with  all 
the  reductions  which  can  probably  be  made  by  abolishing  and  cur- 
tailing the  service — which  must  require  considerable  time  before 
enough  can  be  done  to  produce  any  great  reduction  of  the  gene- 
ral cost  of  the  service — it  is  not  believed  to  be  possible  to  bring 
the  expenditures  for  the  year  within  my  former  estimates;  and, 
especially,  if  Congress  siiall  direct  the  Department  to  assume  the 
control  of  the  service  at  once,  which  it  is  believed  ought  to  be 
done.  And  to  meet  all  contingencies,  and  avoid  a  deficiency  to 
be  supplied  hereafter,  I  have  to  ask,  in  addition  to  the  appropria- 
tions heretofore  made,  that  Congress  appropriate  the  further  sum 
of  five  hundred  thousand  dollars.  This  would  still  leave  the 
expenditures  of  the  current  year  six  hundred  and  fifty-two  thou- 
sand three  hundred  and  twelve  dollars  and  twenty-eight  cents, 
($652,8i.2.28,)  less  than  those  of  the  last  year.  Two  months, 
however,  of  the  year  covered  by  my  estimates  will  have  elapsed 
before  the  service  can  now  be  assumed.  This  time,  at  the  rate 
of  annual  expenditure  of  the  last  year,  would  save  the  expendi- 
ture of  four  hundred  and  seventy-nine  thousand  nine  hundred 
and  twenty  one  dollars  and  seventy-nine  cents,  (§47'J,l*2l.79.) 
And,  hence,  the  actual  reduction  of  expenditure  for  the  remain- 
ing ten  months  would  be  but  one  hundred  and  seventy-two  thou- 
sand three  hundred  and  ninety  dollars  and  forty-nine  cents, 
($172,890.49.)  It  is  believed  a  much  greater  reduction  than 
this  can  be  made.     But  the  means  of  meeting  this  expenditure 


11 

are  expected  to  arise  from  the  three  hundred  thousand  dollars 
heretofore  appropriated  from  the  general  treasury,  and  five  hun- 
dred thousand  dollars  now  asked  to  be  appropriated  from  the 
general  treasury,  and  the  estimated  receipts  of  tlie  Department 
for  the  current  year,  amounting  to  one  million  four  hundred  and 
seven  thousand  one  hundred  and  fifty-eight  dollars  and  thirteen 
cents,  (^1,407,150.13.) 

In  submitting  my  former  estimates,  I  stated  that  "  I  had  not 
then  the  time  or  means  of  cou'-idering  what  the  efi'ect  of  our  pre- 
sent political  disturbances  might  be  on  our  postal  revenues." 
Those  estimates  were  based  upon  the  assumption  that  the  country 
•woula  remain  at  peace,  and  that  its  business  was  not  to  be  mate- 
rially interrupted.  This  assumption  was  adopted,  not  so  much 
from  any  belief  that  peace  was  to  continue,  as  from  the  necessity 
of  assuming  as  a  basis  for  the  estimates  either  a  condition  of 
peace  or  of  war ;  and  as  war  did  not  then  exist,  and  as  it  was 
known  that  Congress  would  soon  meet  again,  I  assumed  the  con- 
dition of  peace  as  the  basis  of  my  estimates,  and  waived  in  my 
former  report  the  consideration  of  what  the  effects  of  war  might 
be  on  our  postal  revenues  until  the  re-assembling  of  Congress. 

We  are  now  involved  in  a  war  between  our  people  and  those 
■with  whom  they  have  heretofore  had  the  most  extensive  business 
and  social  relations,  and  in  which  mighty  armies  are  being  mar- 
shalled, and  which  must  produce  a  general  prostration  of  busi- 
ness on  both  sides,  and  which,  it  is  safe  to  assume,  will  very 
greatly  reduce,  if  it  does  not  totally  suspend,  all  communication 
through  the  mails  between  the  people  of  the  Confederate  States 
and  those  of  the  United  States.  This  suspension  of  communica- 
tion and  prostration  of  business  must  necessarily  produce  a 
reduction  of  the  postal  receipts.  And  if  my  former  estimates — 
based  on  a  condition  of  peace — were  correct,  it  is  fair  to  assume, 
now  that  war  exists,  that  the  current  receipts  will  be  reduced 
greatly  below  those  estimates.  The  supposed  reduction  of  reve- 
nue to  be  derived  from  this  source  constitutes  one  of  the  main 
reasons  for  asking  this  increased  appropriation  from  the  general 
treasury ;  and,  hence,  though  it  is  confidently  anticipated  that  a 
reduction  of  expenditure,  greatly  exceeding  the  sum  of  one  hun- 
dred and  seventy-two  thousand  three  hundred  and  ninety  dollars 
and  twenty-eight  cents,  shown  by  the  above  figures,  may  be 
made,  yet  the  anticipated  reduction  of  postal  receipts  below  for- 
mer estimates,  with  the  other  reasons  stated  in  a  former  part  of 
this  report,  renders  it  safe,  if  not  absolutely  necessary,  to  ask 
for  this  additional  amount.  I  regret  the  necessity  of  asking  this 
additional  appropriation  ;  but  the  former  prodigal  expenditures 
in  this  service,  and  almost  utter  neglect  of  economy  in  its  super- 
vision and  management,  the  difficulty  of  correcting  these  evils  in 
so  extensive  a  department  of  the  public  service  in  a  short  period 


12 

of  time,  and  the  present  condition  of  the  country,  render  it,  in 
my  judgment,  necessary.  And  though  1  ask  this  additional 
appropriHtion,  I  shall  not,  if  it  be  granted,  relax  my  eflForts  to 
reduce  the  expenditures  of  the  Department,  and  do  not  doubt 
that,  by  proper  management,  it  can  be  made  self-sustaining  by 
the  time  speciBed  in  the  permanent  Constitution. 

It  is  to  be  observed  that  the  amount  of  expenditures  over  pos- 
tal receipts,  for  the  last  fiscal  year,  whs  one  million  nine  hundred 
and  forty-one  thousand  four  iiundred  and  twenty-five  dollars  and 
thirty-five  cents,  (1$  1,1341,425.35,)  while,  if  eight  hundred  thou- 
sand dollars — the  amount  now  asked  for — be  granted,  it  will  be 
one  million  one  hundred  and  forty-one  thousand  four  hiJndred 
and  twenty-five  dollars  and  thirty-five  cents,  (§1,141,425.85,) 
less  to  be  supplied  from  the  general  treasury  for  this  than  for  the 
last  year. 

During  the  year  ending  June  30th,  1860,  the  mails  were  car- 
ried over  four  thousand  one  hundred  and  seventy-one  (4,171) 
miles  of  railroad  in  the  Confederate  States,  the  total  annual 
transportation  on  thom  being  three  million  seven  hundred  and 
fifteen  thousand  four  hundred  and  two  (3,715,402)  miles,  and 
the  cost  of  transportation  for  the  same  time  being  six  hundred 
and  thirty-five  thousand  nine  hundred  and  one  dollars,  ($035,- 
901.)  The  total  postal  receipts  in  the  Confederate  States,  from 
all  sources,  for  the  same  period,  amounted  to  but  nine  hundred 
and  thirty-eight  thousan<l  one  hundred  and  five  dollars  and 
forty-two  cents,  (S*J3»,  105.42,)  from  which,  it  will  be  seen,  the 
cost  of  this  branch  of  the  service  alone  was  ecjual  to  about  two- 
thirds  of  the  whole  postal  receipts,  leaving  but  three  hundred  and 
two  thousand  two  hundred  and  four  dollars  and  forty-two  cents, 
($m02,204.42,)  of  postal  receipts  more  than  the  cost  of  the  rail- 
road service.  For  the  same  period  the  transportation  of  the 
mails  by  steamboat  cost  five  Iiundred  and  thirty-five  thousand 
five  hundred  and  eighty-five  dollars,  ($o35,585  ;)  by  coach  service, 
five  hundred  and  thirty-two  thousand  nine  hundred  and  fifty-two 
dollars,  ($o32,1^52 ;)  and  by  modes  of  service  not  specified,  six 
hundred  and  five  thousand  three  hundred  and  eight  dollars, 
($005,308,) — the  total  cost  of  transportation  of  all  kinds,  for 
that  year,  being  two  million  three  hundrc<l  and  nine  thousand 
seven  hundred  and  forty-six  dollars,  ($2, 300,740 ;)  and  the 
excess  of  expenditure  for  transportation  and  other  expenses  of 
the  service  over  the  receipts  of  postal  revenues,  as  stated  above, 
amounting  to  one  million  nine  hundred  and  forty-one  thousand 
four  hundred  and  twenty  dollars  and  thirty-five  cents,  ($1,941,- 
425.35,)  had  to  be  supplied  from  the  general  treasury. 

The  manifest  necessity  for  the  reduction  of  the  cost  of  this 
service  induced  me,  as  one  of  my  first  duties,  to  put  on  foot  such 
examinations,  and  to  institute  such  inquiries,  as  to  enable  me  to 


n 

do  so  at  the  earliest  day  practicable,  and  on  such  principles  as 
would  produce  the  least  reduction  of  mail  facilities,  and  the  least 
injury  to  the  interests  of  contractors,  compatible  with  the  public 
interest  and  a  due  regard  to  economy. 

To  this  end — after  consulting  with  some  of  the  principal  Rail- 
road Presidents  of  the  country,  and  having  their  approval  of  the 
policy  and  propriety  of  the  measure — on  the  I6th  day  of  this 
month  I  addressed  a  circular  letter  to  the  Presidents  of  all  the 
railroad  companies  in  the  Confederate  States,  and  to  a  number 
of  those  in  the  adjacent  States,  requesting  them  or  other  repre- 
sentatives of  their  companies  to  meet  with  me  in  this  city  on  the 
26th  April,  instant,  for  the  purpose  of  considering  the  means  of 
reducing  the  cost  of  the  railroad  service,  and  with  a  view  of 
having  some  general  and  equitable  understanding  with  them  on 
the  subject.  On  the  day  appointed  the  representatives  of  thirty- 
five  companies  met,  most  of  tlie  roads  being  represented  by  their 
Presidents.  All  the  leading  lines  of  road  in  the  Confederate 
States,  with  one  or  two  exceptions,  and  some  of  the  roads  in 
other  States,  were  represented. 

The  mernbe'S  of  this  Convention  represented  four  thousand 
three  hundred  and  seventy-six  (4, 81 6)  miles  of  road,  and  one 
hundred  and  seven  million  six  hundred  and  seventy  thousand 
dollars  of  capital. 

The  result  of  the  meeting  is  disclosed  by  a  communication 
from  myself  to  the  Convention,  in  answer  to  the  verbal  request 
of  a  committee  appointed  by  them,  that  I  should  lay  before 
them,  in  writing,  a  distinct  statement  of  my  views  and  wishes  on 
the  subject  for  which  they  were  invited  to  assemble,  and  by  their 
resolutions  subsequently  passed — both  of  which,  on  account  of 
the  gratifying  and  important  results  of  the  action  of  the  Con- 
vention, are  inserted  at  length  in  this  report,  as  follows : 


Confederate  States  of  America,  "^ 
Post- Office  Department,  \ 

Montgomery,  April  2dth,  1861.     J 
Gentlemen : 

I  am  much  gratified  that  so  large  a  number  of  the  Presidents 
and  other  representatives  of  railroad  companies  in  the  Confede- 
rate States,  and  others  connected  with  lines  of  road  reaching 
beyond  its  borders,  have  responded  to  my  request,  that  they 
should  meet  with  me  at  this  time  and  place  to  consider  questions 
at  once  so  important  to  the  Government  of  the  Confederacy  and 
to  the  railroad  companies. 

The  change  of  government  requires  a  new  system  of  postal 
service,  and  that  the  new  government  assume  the  control  of.  and 
liability  for,  that  service,  as  soon  as  possible.     And  as  our  Gov- 


i4 

ernment  commences  without  accumulated  revenues,  and  must 
raise  means  for  its  support  as  it  projireeses,  without  established 
political  and  commercial  relations  with  forcijin  powers,  and,  at 
the  same  time,  is  involved  in  a  war  which  must  preatly  prostrate 
the  business  of  the  country  in  all  its  departments  and  employ, 
for  tlie  present,  the  enterprise  and  energies  of  the  petple  for  the 
defence  of  our  rights,  and  the  establishment  of  our  independence, 
rather  than  in  the  more  pleasant  and  profitable  pursuits  of  life, 
it  becomes  important  to  abridge  the  expenses  of  the  Government 
to  the  lowest  figure  practicable  in  all  its  branches. 

It  is,  at  the  same  time,  a  matter  of  great  importance  to  keep 
up  the  necessary  mail  facilities,  and  in  this,  the  important  agen- 
cy of  the  railroads  of  the  country  is  essential,  constituting,  as 
they  do,  the  great  lines  of  postal  communication. 

I  shall  ask  the  Congress,  which  is  to  meet  on  next  Monday,  to 
give  me  authority  to  assume  the  direction  of  our  postal  service  at 
once.  If  this  should  be  done,  the  Confederate  States  will,  from 
that  time,  become  responsible  for  the  payment  of  contractors  for 
the  service.  I  shall  also  recommend  the  continuance  of  the  ex- 
isting contracts  during  the  existing  Provisional  Government,  and 
ask  for  power  to  abolish  and  curtail  the  service  whenever  it  can 
be  done  with  propriety. 

The  interruption  of  our  social  and  commercial  relations  with 
the  people  of  the  Northern  States  and  their  great  commercial 
cities,  by  the  existing  war,  the  abolition  of  the  franking  privilege 
by  our  Government,  and  the  probable  discontinuance  of  the  cir- 
culation of  a  large  number  of  newspapers  and  periodicals  pub- 
lished in  those  States,  will  very  greatly  reduce  the  bulk  and 
weight  of  the  mails,  and  will,  hence,  render  a  corresponding  re- 
duction of  the  cost  of  the  service  proper;  while  the  probable 
trials  and  embarrassments,  through  which  we  may  expect  to  pass, 
will  render  the  strictest  economy  absolutely  necessary. 

I  propose,  therefore,  to  submit  to  you  the  question  as  to 
whether  the  postal  wants  of  the  country  may  not  be  adequately 
met  by  daily  service  on  the  principal  raili'oad  routes,  in  lieu  of 
the  present  more  expensive  double  daily  service  on  some  of  them, 
and  i  such  a  reduction  will  be  agreeable  to  companies  now  car- 
rying the  mails  twice  a  day. 

I  propose,  also,  to  submit  to  you  the  question  as  to  whether  it 
will  be  agreeable  to  the  railroad  companies  for  the  railroad  ser- 
vice to  be  arranged  in  three  classes,  and  fur  those  of  the  first 
class  to  accept  for  their  services  in  carrying  the  mails  once  a  day, 
upon  schedules  to  be  agreed  on,  a  sum  not  exceeding  one  hun- 
dred and  fifty  dollars  per  mile  ;  those  of  the  second  class,  a  sum 
not  exceeding  one  hundred  dollars  per  mile  ;  and  those  of  the 
third  class,  a  sura  not  exceeding  fifty  dollars  per  mile.  This 
classification  to   be   arranged  on   the  basis  of  making  the  great 


15 

through  connecting  lines  between  important  points,  class  number 
one;  completed  roads,  connecting  less  important  points,  but  car- 
rying heavy  mails  for  local  distribution,  to  compose  class  two  ; 
and  roads  on  which  less  important  mails  are  conveyed,  short 
branch  roads,  and  such  unfinished  roads  as  do  not  carry  great 
mails,  or  connect  important  points,  to  compose  the  third  class. 

I  also  submit  to  you  the  quOvStion  as  to  whether  it  will  be  agree- 
able to  the  companies  you  represent  to  accept  the  bonds  of  the 
Confederate  States,  in  whole  or  in  part  payment  for  this  service. 

The  Depirtment  would  gladly  avail  itself  of  the  opportunity 
presented,  by  the  presence  of  so  large  and  respectable  a  number 
of  railroad  Presidents  and  representatives,  of  soliciting  sugges- 
tions on  any  other  subject  connected  with  this  important  branch 
of  the  postal  service.  1  beg  also  to  assure  you  that  it  is  the 
wish  of  the  Department  to  have  a  free,  full  and  cordial  under- 
standing with  all  the  railroad  companies  in  relation  to  all  matters 
connected  with  the  postal  service. 

Tendering  you  my  sincere  thanks  for  the  trouble  and  expense 
you  have  assumed  in  visiting  this  city,  at  my  request,  I  beg  to 
subscribe  myself, 

"With  the  greatest  respect,  gentlemen,   . 

Your  obliged  and  obedient  serv'nt, 

JOHN  H.  REAGAN, 

Postmaster  General. 

To  the   Convention  of  the  Presidents  and  Representatives  of 
Railroad  Companies,  ^c,  ^^c. 


RESOLUTIONS   ADOPTED    BY    THE    RAILROAD    CONVENTION. 

The  committee,  to  whom  was  referred  the  communication  of 
the  Postmaster  General,  with  the  various  resolutions  belore  the 
Convention,  having  considered  the  same,  beg  to  submit  the  fol- 
lowing resolutions  as  the  result  of  their  deliberations: 

1st.  Resolved,  That  the  Railroad  Companies  here  represented, 
until  they  are  forbidden  by  the  Confederate  States,  deem  it  to 
be  their  duty  faithfully  to  discharge  their  obligations  and  con- 
tracts with  the  Government  of  the  United  States  for  carrying 
the  mails,  so  long  as  that  Government  faithfully  performs  and 
fulfils  the  obligations  cntereil  into  on  its  behalf. 

2nd.  Renolvcd,  That  immediately  upon  the  failure  or  refusal 
of  the  Government  of  the  United  States  to  discharge  its  part  of 
the  contracts,  entered  into  between  that  Government  and  the 
companies  here  represented,  the  latter  stand  ready  and  willing 
at  once  to  transfer  their  services  to  the  Government  of  the  Con- 


16 

federate  States,  and  enter  into  immediate  obligations  for  the 
transportation  of  the  public  mails  wit  lin  the  limits  of  the  Con- 
federate States,  upon  the  terms  and  conditions  hereinafter  stated. 

3d.  Rettolvfd,  That  this  Convention  concurs  in  the  proposition 
of  the  Postmaster-(7eneral  for  one  daily  service  on  the  principal 
roads,  in  lieu  of  the  present  double  daily  service  on  some  of 
them. 

4th.  Besohed,  That  in  the  opinion  of  this  Convention,  the 
Railroads"  service  should  be  distributed  into  four  classes,  as  nearly 
as  possible,  based  upon  the  following  consideration^ : 

Class  number  one  to  consist  of  the  great  through  connecting 
lines  between  important  points,  whether  transported  by  day  or  by 
night. 

Class  number  two  to  consist  of  completed  roads  connecting  less 
important  points,  but  carrying  heavy  mails  for  local  distribution, 
including  also  night-service. 

Class  number  three  to  consist  of  similar  roads,  whether  com- 
pleted or  not,  performing  no  night  service. 

Class  number  four  to  consist  of  roads  on  which  less  important 
mails  are  carried,  short  branch-roads,  and  other  Railroads  not  in- 
cluded in  either  of  the  other  classes. 

5th.  Resolved  further^  That  for  Class  No.  1,  shall  be  paid  not 
more  than  two  hundred  dollars  per  mile;  Class  No.  2,  not  more 
than  one  hundred  and  fifty  dollars ;  Class  No.  3,  not  more  than 
one  hundred  dollars ;  Class  No.  4,  not  more  than  fifty  dollars  per 
mile — the  precise  amount  in  each  case  to  be  agreed  on  with  the 
Postmaster-General. 

Gth.  He.solved,  however^  That  in  view  of  the  condition  of  our 
public  affairs,  this  Convention  is  willing  to  meet  the  views  of  the 
Postmaster-General  proposing  diflorcnt  classes  of  mail-service, 
and  less  compensation  than  that  which,  in  the  opinion  of  this 
Convention,  in  a  period  of  peace  and  general  prosperity,  ought  to 
be  allowed  ;  and  that,  therefore,  during  the  period  of  the  Provisional 
Government,  and  for  such  further  time  as  the  exigencies  of  the 
country  may  make  it  necessary,  the  companies,  here  represented, 
will  submit  to  the  classes  of  mail-service,  and  the  compensation 
stated  in  the  communication  of  the  Postmaster-General,  with  the 
single  exception  that  additional  compensation  may  be  made  for 
night  service ;  and  they  will  agree  to  receive  the  bonds  of  tho 
Confederate  States,  in  payment  therefor,  to  the  extent  that  a  de- 
ficiency in  the  revenues  of  the  Post-Office  Department  may 
require. 

(th.  Resolved,  That  the  companies  here  represented,  cannot, 
in  any  new  contracts  they  may  make,  undertake  to  deliver  the 
mails  at  the  post-offices. 

[Signed]  .     WILLIAM  JOHNSTON, 

Chairman. 


17 

I  append  to  this  Report  the  names  of  the  several  railroads 
represented  in  this  Convention,  and  of  the  persons  representing 
them,  marked  (Appendix  G.)  And  also  a  list  of  the  roads  per- 
forming double  daily  service  and  the  rates  of  pay  per  mile  ;  roads 
performing  daily  service  at  two  hundred  dollars,  and  upwards, 
per  mile ;  roads  which  receive  less  than  two  hundred,  and  more 
than  one  hundred,  dollars  per  mile ;  roads  which  receive  one  hun- 
dred dollars  per  mile  ;  roads  which  receive  less  than  one  hundred, 
and.more  than  fifty,  dollars  per  mile;  roads  which  receive  fifty 
dollars  per  mile  ;  and  roads  which  receive  less  than  fifty  dollars 
per  mile,  with  the  mean  or  average-rate  of  compensation  of  each 
class,  hereto  annexed  and  marked  (Appendix  H,) 

It  is  proper  to  say  that,  under  existing  law,  the  railroads  are 
rated  in  three  classes  for  postal-service,  and  that  the  maximum 
pay  per  mile  allowed  the  first  class  is  three  hundred  dollars. 
The  maximum  pay  suggested  by  me,  and  so  promptly  arvd  gene- 
rously accepted  by  the  Convention,  amounts  to  but  one-htilf  that 
sura,  unless  increased  by  night-service,  and  will  secure  a  very 
considerable  reduction  of  the  cost  of  the  service.  The  principle 
on  which  I  have  proposed  to  classify  the  roads  which,  for  the  time 
being,  has  been  assented  to  by  the  Convention,  is  believed  to  be  more 
specific  and  intelligible  than  that  adopted  in  the  existing  law. 
The  Convention,  while  presenting  a  classification  of  their  own, 
and  suggesting  rates  of  pay  differing  in  §ome  respects  from  those 
suggested  by  me,  agree,  by  their  resolutions,  to  waive,  for  the 
present,  any  demand  for  what  they  regard  as  a  full  rate  of  com- 
pensation, and  to  accept  that  suggested  by  me,  but  limit  their 
consent  to  the  duration  of  the  Provisional  Government,  and  for 
such  further  time  as  the  exigencies  of  the  country  may  make  this 
concession  necessary. 

To  carry  out  and  render  effective  the  foregoing  understanding, 
and  that  the  Department  may  have  the  authority  of  law  for  ap- 
plying the  same  rules  to  all  other  railroad  companies.  Congress 
should  ailopt  the  above,  or  some  other  equivalent  classification  of 
roads,  and  should  fix  the  rates  of  compensation  specified  for  the 
several  classes. 

While  I  ask  that  this  be  done  to  meet  the  present  necessities, 
I  am  not  prepared  to  say  but  that  the  higher  rates  of  pay  men- 
tioned by  the  Railroad  Convention  would  be  proper,  if  the  coun- 
try was  in  a  state  of  peace  and  prosperity.  But  of  this  the 
Congress  will  be  better  qualified  to  judge,  as  I  cannot  claim  a 
great  amount  of  information  on  the  subject. 

I  cannot  close  my  reference  to  this  subject,  without  expressing 
my  grdat  gratification  that  so  large  a  number  of  the  business 
men  and  capitalists  of  all  parts  of  the  country  should  have  re- 
sponded so  promptly  to  a  call  on  them  to  make  a  pecuniary  sacri- 
fice for  themselves  and  the  companies  they  represented,  in  order 
3 


18 

to  sustain  the  Government  in  the  hour  of  its  embarrassment  and 
trial,  and  expressing  the  hope  that,  if  it  be  found  in  future  that 
their  generous  and  patriotic  action  has  been  such  as  to  impose 
undue  burdens  on  them,  the  Government  ma}',  in  more  auspicious 
times,  remember  the  circumstances  under  which  this  sacrifice  was 
made. 

It  is  believed,  if  Congress  shall  give  the  Department  the  au- 
thority, bj  allowing  it  to  curtail  and  discontinue  "the  service  in 
proper  cases,  that  very  considerable  reductions  can  be  made  in 
the  cost  of  steamboat  and  steamship-service. 

I  have  the  honor  to  be, 

Very  respectfully, 

Your  obedient  servant, 

JOHN  H.  REAGAN, 

Postmaster-General. 


APPENDIX  A. 


Confederate  States,  "j 

Post-Office  Department^         > 

MoNTGOxMERY,  Ala.,  April  23,  1861.  j 

^Tow.  John  R.  Reagan^  Postmaster-General : 

Str  :  I  have  the  honor  to  report  that  I  assumed  the  duties  of 
the  Chief  of  the  Contract  Bureau  of  this  Department  on  the  22(1 
of  March  last,  and  took  immediate  steps  for  its  organization  and 
the  prompt  preparation  of  the  proper  books  and  circular  letters, 
and  for  obtaining,  at  the  earliest  practicable  period,  the  necessary 
supplies  of  blanks,  postage  stamps,  stamped  envelopes,  mail-locka 
and  keys,  rating  stamps,  and  canvass  and  leather  mail-bags  ;  and 
beg  leave  to  submit  the  following  exhibit  of  the  chief  labors 
accomplished,  namely: 

Seven  contract-books  have  been  completed,  exhibiting,  in  the 
form  prescribed  by  law,  every  post-route  in  the  Confederate 
States,  together  with  the  cost  of  the  present  mail-service  on  each 
route  within  the  States  of  Alabama,  Mississippi,  Louisiana  and 
Texas,  the  location  of  each  post-office  thereon,  together  with  the 
schedules  of  arrivals  and  departures.  For  the  States  of  South 
Carolina,  Georgia  and  Florida,  I  have  not  the  means  at  present 
of  presenting  the  amounts  paid  for  mail  transportation  upon  each 
route ;  but  all  other  information  in  regard  to  the  routes  therein, 
is  entered  in  the  contract-books,  and  I  have  no  doubt  that  I  will  be 
able  to  obtain  the  cost  of  service  on  each  route  within  a  brief  period 
of  time.  Books  are  now  being  prepared,  and  will  be  completed  by 
the  meeting  of  Congress,  exhibiting  the  offices  in  each  of  the  Con- 
federate States,  in  alphabetical  order,  and  the  number  of  the 
post-route  or  routes  from  which  they  obtain  their  supplies,  together 
with  the  amount  of  the  postal  revenues  of  each  during  the  fiscal 
year  ending  June  oOth,  1859  ;  so  that  the  number  and  postal 
value  of  all  offices  on  these  routes  can  be  determined  with  suffi- 
cient accuracy  to  enable  you  to  decide  upon  the  propriety  of 
their  continuance,  or  the  necessity  of  an  increased  or  diminished 
service,  and  also  the  number  and  postal  value  of  all  the  offices 
supplied  by  ^'speciaV  mail  and  '■'•  mail-messayiger''  service,  not 
unrler  contract,  or  on   the  regular  post-roads  established  by  law. 

Advertisements,  inviting  proposals  f6r  supplying  this  Depart- 
ment  with   blanks,  postage-stamps,  stamped  ienvelopes,  rating- 


20 

stamps,  mail-locks  and  keys,  wrappinjT  paper,  twine,  and  canvass 
and  leather  mail- baps,  were  prepared  March  llihh  last,  and  in- 
serted in  papers  published  at  such  points,  both  within  and  with- 
out the  Confcilcrate  States,  as  were  deemed  necessary  to  obtain 
these  supp'ies,  and  the  proper  competition  to  secure  the  best 
articles  upon  the  be-^t  an<l  cheapest  terms. 

The  bids  for  these  supplies  will  be  opened  at  the  Department 
on  the  Ist  proximo. 

I  have  succeeded  in  making  a  contract,  upon  terms  advan- 
tageous to  the  Department,  for  supplying  it  promptly  with  the 
various  circular-letters,  which  the  immense  number  of  analogous 
cases,  arising  in  the  Department,  enable  it  to  use  in  lieu  of  manu- 
script letters,  to  a  great  extent;  also,  bonds  and  oaths  of  office 
of  postmasters,  commissions,  contracts,  &c.,  and  papers  for  the 
same. 

I  have  prepared,  and  submit  herewith,  statements  exhibiting, 
in  detail,  the  organization  of  the  various  Bureaus  of  the  Post- 
Oflice  Department,  and  of  the  Auditor's  Office  for  that  Depart- 
ment, as  they  exist  at  Washington,  D.  C,  together  with  a  plan 
for  their  organization  in  the  Confederate  States. 

In  accordance  with  the  provisions  of  the  39th  section  of  an 
Act,  approved  3d  March,  1825,  I  submit,  herewith,  copies  of  the 
various  mail-routes  within  the  States  of  Alabama,  Mississippi, 
Louisiana  and  Texas,  which  do  no-t  produce  one  third  of  the  ex- 
pense of  carrying  the  mail  on  the  same.  Routes  of  a  similar 
character,  doubtless,  exist  in  the  other  Cmfederate  States,  but  I 
am  unable  to  present  them  at  this  time,  but  will  do  so  at  the 
earliest  period  practicable. 

I  have  bestowed  as  much  time  and  attention  as  I  could  com- 
mand on  such  a  revision  of  the  post-routes  within  the  Confede- 
rate States,  as  wouhl  enable  you  "  to  form  the  best  judgment 
practicable  as  to  the  mode,  time,  and  frequency  of  transportation 
on  each  route,  before  advertising  for  proposals  for  carrying  the 
mails"  thereon;  and  have  prepared  and  issued  numerous  letters 
of  inquiry  in  relation  to  the  postal- service  on  existing  routes. 
I  have  the  honor  to  be, 

Very  respectfully, 

H.  St.  GEORGE  OFFUTT, 
Chief  of  the  Contract  Bureau. 


I. 

CHIEF    CLERK. 


The  Chief  Clerk  of  the  Department,  (salary  $1500,)  will  keep 
the  journal  of  the  Postma-ster  General,  recording  therein  all  let- 
ters and  reports  to  which  his  signature  is  attached,  in  addition  to 


21 

the  duties  enjoined  upon  him  by  the  provisions  of  the  13th  sec- 
tion of  an  Act,  approved  2Gth  August,  1842. — U.  S.  Laws  vol. 
5th,  page  525. 


CONTRACT  OFFICE,  POST-OFFICE  DEPARTMENT. 

To  this  office  is  assigned  the  business  of  arranging  the  mail 
service  of  the  United  States,  and  placing  the  same  under  con- 
tract, embracing  all  correspondence  and  proceedings  respecting 
the  frequency  of  trips,  mode  of  conveyance,  and  times  of  depar- 
^tures  and  arrivals  on  all  the  routes;  the  course  of  the  mail  be- 
tween the  different  sections  of  the  country,  the  points  of  mail 
distribution,  and  the  regulations  for  the  Government  of  the  do- 
mestic mail  service  of  the  United  States.  It  prepares  the  adver- 
tisements for  mail  proposals,  receives  the  bids,  and  takes  charge 
of  the  annual  and  occasional  mail  lettings,  and  the  adjustment 
and  execution  of  the  contracts.  All  applications  for  the  estab- 
lishment or  alteration  of  mail  arrangements,  and  the  appointment 
of  mail  messengers,  should  be  sent  to  this  office.  All  claims 
should  be  submitted  to  it  for  transportation  service  not  under 
contract,  as  the  recognition  of  said  service  is  first  to  be  obtained 
through  the  Contract  Office  as  a  necessary  authority  for  the 
proper  credits  at  the  Auditor's  Office.  From  this  office,  all 
postmasters  at  the  ends  of  routes  receive  the  statement  of  mail 
arrangements,  prescribed  for  the  respective  routes.  It  makes  a 
weekly  report  to  the  Auditor  of  all  contracts  executed,  accom- 
panied by  the  contracts,  and  of  all  orders  affecting  accounts  for 
mail  transportation  ;  prepares  the  statistical  exhibits  of  the  mail 
service,  and  the  reports  of  the  mail-lettings,  giving  a  statement 
of  each  bid:  also,  of  the  contracts  made,  the  new  service  ori'^'i- 
nated,  the  curtailments  ordered,  and  the  additional  allowances 
granted  within  the  year. 

Tlie  discharge  of  these  multifarious  and  responsible  duties  are 
entrusted  to  a  corps  of  officers,  organized  and  classified  in  the 
following  order,  viz  : 

ORGANIZATION    OF    THE    CONTRACT    OFFICE    IN    THE    DEPARTMENT 
AT    WASHINGTON. 

One  Chief  of  the  Contract  Bureau,  originally  styled  the  Ist 
Assistant  Postmaster  General,  but,  from  and  after  the  year  1852, 
styled  the  2nd  Assistant — salary  $3000. 

One  Principal  Clerk,  E.  L.  Childs,  salary  $1800,  whose  prin- 
cipal duty,  in  addition  to  the  general  supervision  of  the  business, 
is  the  arrangement  of  the  mail  service,  by  means  of  distributing 
and  separating  offices  at  points  of  railway  radiation  and  termini; 


22 

and  the  preparation  of  instructions  to  postmasters  and  contractors 
for  insuring  the  prompt  transmission  of  the  mails. 
Ten  contract  clerks  at  salaries  of  $ltJuO  : 

James  N.  Davis,  in  charge  of  the  roates  ia     Oeo.,  S   C,  Ala.  &  Fla. 

Job.  U    Wheat.                       "  "  "  Mi?«.,  La .  Ark.  &  Texas. 

Jo.^eph  Quickf^ftll,                  "  "  "  Ti-nn..  Ky.,  Mo.  &   Iowa. 

W.  J.  Crandall,                       "  •'  "  Illinois  &  Miohipan 

Wm.    Slemmer,                      •*  "  '*  Virginia  &  North  Carolina. 

Louis  Watkins,                     "  *'  •'  Pcnn.,  M<1   &  New  Jersey. 

J.  E.  Peebles,  (resigned)    •*  "  "  Ohio  &  Indiana. 

T.  D    D.  Leech,                     "  "  "  N.  Y.,  Cal.,  Oregon  A  Utah. 

R.  T.  McLean,                       "  "  '«  New  England  States. 

Mr.  Shields,  assistant  to  W.  J.  Crandall,  "  Illiuois  k  Michigan.                 | 

Four  route-book  clerks  at  salaries  of  $1400: 

J.  M.  Miller, 4th  Contract  section. 

Mr.   King,  8rd  •'  '« 

Mr.   Dundass, 2nd         "  *' 

Mr  Colt,  1st  " 

(See  page  111  of  Department  Regulations.) 

The  chief  duties  of  these  clerks  are  to  examine  the  ^^ orders" 
in  regard  to  changes  of  mail  service,  and,  if  found  correct,  to 
enter  them  upon  the  Contract-Books,  send  out  circular-forms  of 
schedules  of  service  and  instructions  to  postmasters  and  contract- 
ors, in  regard  to  changes  of  service  and  discontinuances  of  oflices, 
and  to  aid  in  the  general  labor  of  opening  and  preparing  bids 
for  mail-service,  at  the  annual  mail-lettings,  for  the  decision  of 
the  Postmaster  General. 

One  Topographer,  Ily.  A.  Burr,  (salary  $1800,)  and  one  as- 
sistant, (salary  ^1200,)  whose  duty  is  to  make  correct  drawings, 
representing  the  various  post  routes  and  locations  of  offices,  with 
their  distances  from  each  other;  to  examine  all  cases  prepared  in 
the  Appointment  Office  for  the  establishment  of  new  post-offices, 
in  order  to  determine  the  propriety  of  its  establishment,  by  de- 
termining its  location  and  distance  from  tlie  nearest  post-office, 
and  the  route  from  which  it  is  to  obtain  its  n. ail-supply,  if  on  a 
post  road,  and  the  name  of  the  post-ollice  from  wliich  supplies 
are  to  be  obtained,  if  the  new  office  is  to  be  a  "  special  "  or  mail- 
messenger  office. 

One  Report  Clerk,  Arthur  Marr,  (salary  $1400,)  wlio  records 
all  orders  of  the  Postmaster-General  in  relation  to  niail  contracts, 
and  prepares  special  orders  to  be  furnislied  to  the  Auditor,  at  in- 
tervals between  the  regular  periods  of  making  weekly  reports  of 
orders. 

One  Miscellaneous  Clerk,  Cranston  Lawrie,  salary  $1(300,  who 
prepares  statistical  tables  of  mail  service,  &c.,  and  the  annual 
reports  to  Congress  of  contracts  made,  and  new  service  origina- 


23 

ted, 'the  curtailments  ordered,  and  the  additional  allowances 
granted  within  the  year. 

One  clerk,  William  Bell,  (salary  $2000,)  in  charge  of  the  ser- 
vice on  important  railroad  routes,  who  also  disburses  the  money 
appropriated  for  the  salaries  and  contingent  expenses  of  the  De- 
partment, and  is  the  Superintendant  of  the  Post-office  Building. 

Two  clerks,  Mr.  Spottswood  and  Mr.  Dunn,  (salaries 
$1400,)  who  prepare  duplicate  contracts  for  all  mail-service 
under  contract,  and  send  them  out  to  accepted  bidders  for  exe- 
cution, and,  when  returned  to  the  Department  properly  executed 
by  the  contractor  and  sureties,  present  them  to  the  Postmaster- 
General  for  his  signature,  after  obtaining  which,  one  of  the  con- 
tracts is  filed  in  the  Contract-Office,  and  the  other,  accompanied 
by  a  report  in  tabular  form,  is  sent  to  the  Auditor,  in  compliance 
with  the  provisions  of  the  11th  section  of  an  Act,  approved  2nd 
July,  1836. 

Three  "  Letter  Book  "  Clerks,  Messrs.  Taylor,  Johnson  and 
Warren,  (salaries  $1200.) 

Total  number  of  Clerks,  26. 

PROPOSED  ORGANIZATION  OF  THE   CONTRACT  BUREAU  OP  THE 
CONFEDERATE    STATES. 

One  Chief  of  the  Contract  Bureau,  at  an  annual  salary  of 
$  ,  on  whom,  in  case  of  the  death,  resignation,  removal  or 
absence,  of  the  Postmaster-General,  all  his  powers  and  duties 
shall  devolve  for  the  time  being. 

In  addition  to  the  general  supervision  and  management  of  the 
domestic  postal  service,  to  the  Chief  of  the  Bureau  is  likewise 
assigned  the  supervision  of  the  Ocean  Mail  Steamship  lines,  and 
of  the  foreign  and  international  postal  arrangements. 

One  Principal  Clerk  at  a  salary  of  $         ,  to  assist  the  Chief 
of  the  Bureau  in  the  supervision  and  management  of  the  Bureau 
and  to  revise  labors  of  the  several  clerks,  as  provided  by  the  13th 
section  of  an  Act,  approved  26th  August,  1842, — 5th  Statutes  at 
Large,  page  525. 

Four  clerks  in  charge  of  the  "  Contract  Books,"  at  salaries  of 
$  each,  who  shall,  in  addition  to  the  duties  discharged  by  the 
Contract  Clerk  at  Washington,  discharge  all  the  duties  pertain- 
ing to  the  four  Route  Book  Clerks  at  Washington. 

Two  clerks,  at  salaries  of  $  each,  one  of  whom  shall  re- 

cord the  orders  of  the   Postmaster-General,  and  assist  the  other 
in  copying  the  letters  prepared  in  the  Bureau. 

One  Topographer,  at  a  salary  of  $         ,  whose  duty,  in  addi- 
tion to  the   preparation   of  maps  and  diagrams  of  mail-routes 
shall  be  to  prepare  the  statistical  tables  of  mail-service. 

One  clerk  to  prepare  the  Contracts  for  mail  service,  and  issue 


•  24 

them  to  contractors  to  be  executed,  and,  when  returned,  to  revise 
and  present  them  to  tlie  Postmaster-General  for  his  signature, 
and  then  to  report  them  to  the  Auditor,  together  with  a  dupli- 
cate of  each. 

Total  number  of  clerks,  under  proposed  organization,  9. 

Total  number,  under  organization  at  Washington,  26. 


II. 
APrOINTMENT  OFFICE. 

ORGANIZATION  OF  THE    APPOINTMENT  OFFICE  OF  THE  POST-OFFICB 
DEPARTMENT  *AT  WASHINGTON,  D.  C. 

This  office  is  now  in  charge  of  the  First  Assistant  Postmaster 
General,  (salary  ^oOjO,)  and  to  it  are  assigned  all  (juestiona 
which  relate  to  the  estal)lishmcnt  and  discontinuance  of  post- 
offices,  changes  of  sites  and  names,  appointment  and  removal  of 
postmasters  and  route  and  local  agents;  as,  also,  the  giving  of 
instructions  to  postmasters  in  relation  to  postal  laws,  and  obtain- 
ing from  them  proper  bonds  for  the  faithful  discharge  of  the  du- 
ties of  their  offices.  Postmasters  are  furnished  by  this  Bureau 
with  blanks,  marking  and  rating  stamps,  and  letter-balances. 

To  this  office  is  also  assigned  the  supervision  of  the  Ocean 
Mail  Steamship  service,  and  of  the  foreign  and  international  pos- 
tal arrangements. 

One  Principal  Clerk,  (salary  ^1800,)  who  has  a  general  super- 
vision of  the  business  of  the  Bureau,  and  assists  in  the  correa- 
dance  with  postmasters. 

Nine  Corresponding  Clerks,  who  receive  all  letters  and  papers 
in  relation  to  post-office  establishments,  discontinuances,  appoint- 
ments, &c.,  and  furnish  instructions  to  postmasters  in  relation  to 
the  postal  affairs  of  their  offices. 

Five  clerks  are  employed  in  the  "Bond  Room  "  in  the  entry 
of  all  appointments  of  postmasters,  and  changes  of  various  kinds 
in  the  names  and  locations  of  post-offices,  in  Registers  arranged 
alphabetically,  geographically,  and  by  counties  in  States.  All 
bonds  of  postmasters  and  commissions,  except  those  to  post- 
masters appointed  by  the  President,  are  issued  and  registered  by 
these  clerks,  and  weekly  reports  of  appointments  and  changes 
made  by  the  Postmaster-General,  are  prepared  in  this  division 
for  the  use  of  the  Auditor,  and  of  the  Contract  and  Finance 
Bureaus. 

One  Miscellaneous  Clerk  in  charge  of  route  and  special  agents' 
papers,  and  of  the  Register  of  Presidential  appointments  and 
commissions. 


One  Letter-Book  Clerk,  who  records  all  letters  written  by  the 
Bureau. 

One  clerk  in  charge  of  the  supplies  of  blanks  and  marking 
and  rating  stamps,  for  the  use  of  the  post-offices,  with  an  assist- 
ant who  prepares  tiiem  for  the  mail. 

One  clerk  in  charge  of  the  foreign  postal  arrangements,  and 
of  the  contracts  for  Ocean  Mail  Steamship  service. 

Twenty  clerks:  Salaries,  one  at  $1800  per  annum. 

eleven  at  ^lUOO  " 

four  at  $1400  " 

four  at  il-00  " 

One  messenger  at  $  840  " 


PROPOSED    ORQANIZATIOM    OF    THE    APPOINTMENT    OFFICE  OF  THE 
CONFEDERATE  STATES. 

A  Chief  of  the  Appointment  Office,  salary  $ 

One  Principal  Clerk  to  perform  duties  similar  to  those  per- 
formed by  the  Principal  Clerk  at  the  Department  in  Washington, 
D.  C,  salary  $ 

■  Two  Corresponding   Clerks  in  charge  of  papers  pertaining  to 
post  offices,  and  instructions  to  postmasters  :  salaries  $ 

One  Letter  Book  Clerk,  who  shall  also  perform  the  duties  of 
the  Miscellaneous  Clerk  :  salary  $ 

Two  clerks  in  charge  of  the  duties  pertaining  to  "  the  Bond 
Room  :"  salaries  $         . 

One  clerk  to  receive  and  distribute  the  blanks  and  marking 
and  rating  stamps :  salary  § 

Seven   clerks. 


III. 
INSPECTION  OFFICE. 

ORQANIZATION    OP    THE    INSPECTION    OFFICE  OF   THE  POST-OFFICE 
DEPARTMENT  AT    WASHINGTON. 

To  this  office  is  assigned  the  duty  of  receiving  and  examining 
the  registers  of  the  arrivals  and  departures  of  the  mails,  certifi- 
cates of  the  service  of  Route  Agents,  and  reports  of  mail  fail- 
ures; of  noting  the  delinquencies  of  contractors,  and  preparing 
cases  thereon  for  the  action  of  the  Postmaster-General ;  furnish- 
ing blanks  for  mail-registers,  and  reports  of  mail  failures;  pro- 
viding and  sending  out  mail  bags,  and  mail  locks  and  keys,  and 
4 


26 

doing  all   other  thinps  necessary  to  secure  a  faithful  and  exact 

performance  of  all  mail  contnicls. 

All  cases  of  mail  depredation,  of  violation  of  law  bv  private 
expresses,  or  by  the  forging  or  illegal  use  of  postage  stamps,  are 
under  the  suftervision  of  this  office  and  are  reported  to  it. 

The  Chief  Clerk  of  the  Department  is  the  head  of  this  Bureau: 
salary  $J20(I. 

Une  Principal  Clerk  (salary  ?1800,)  who  has  special  charge  of 
the  cases  of  mail  deprtdation,  and  violations  of  postal  laws. 

One  clerk  assists  him  in  the  preparation  an<l  management  of 
these  cases  :  salary  $loUO. 

Eleven  clerks  are  engaged  in  the  discharge  of  duties  pertain- 
ing to  the  mail  service,  indicated  in  the  enumeration  of  the  du- 
ties of  the  Bureau. 

One  clerk  prepares  the  reports  of  fines  and  deductions,  for  the 
use  of  the  Auditor,  and  opens  and  distributes  the  mails  received 
at  the  Department. 

Two  clerks  in  charge  of  the  Letter-Books,  and  record  therein 
all  letters  written  by  the  Bureau. 

Two  clerks  in  charge  of  the  distribution  of  the  mail  bags,  and 
mail  locks  and  keys. 

One  clerk  in  charge  of  the  service  performed  by  lloute 
Agents. 

One  Journal  Clerk  who  records  all  orders  of  the  Postmaster- 
General,  affecting  the  accounts  of  the  Department,  or  ap|iointing 
a  postmaster  or  establishing  an  office,  <S:c.,  at  the  following  sala- 
ries : 

One  Chief  Clerk  of  Department,  $2200 

One  Principal  Clerk,  $lrtOO 

Two  clerks  at  §1G00 

Eleven  clerks  at  $1400 

Five  clerks  at  $l200 

Total  number,  twenty. 


PROPOSED    ORGANIZATION    OF     THE    INSPECTION    OFFICE    OF    THE 
POBT-OFFICK    DEPAKTMEKT  OF    THE  CONFEDERATE  BTATES. 

The  supervision  and  management  of  the  business  of  the  office 
to  be  under  the  control  of  the  Chief  of  the  Appointment  Bureau, 
assisted  by, 

One  Principal  Clerk  at  a  salary  of  $  ,  whose  special  duty 
shall  be  the  investigation  and  direction  of  cases  of  mail  depreda- 
tion and  violations  of  postal  laws. 

Three   clerks  in  charge  of  the  mail-service. 

One  Letter-Book  Clerk  to  record  the  letters  of  the  office. 


,  27 

One  clerk  in  charge  of  the  receipt  and  distribution  of  the 
mail-bags  and  mail-locks  and  keys,  and  of  the  service  perlormed 
by  route  agents. 

Total  number  of  clerks,  six. 


FINANCE  OFFICE. 

WITH    DETAILED     STATEMENT     OF     ITS     ORGANIZATION    AS    IT    EX- 
ISTS   AT    WASHINGTON,    AND    EXHIBIT    OF   ITS    DUTIES. 

The  Third  Assistant  Postmaster-General,  whose  duties  embrace 
the  general  supervision  of  the  duties  of  the  Bureau,  the  affixing 
of  his  signature  to  all  letters  written  by  the  clerks,  and  to  all 
orders  for  postmasters  to  pay  over  the  proceeds  of  their  offices 
to  contractors  and  to  all  drafts  drawn  on  draft-offices  in  payment 
of  balances  due  by  the  Post-Office  Department;  the  making  of  con- 
tracts for  supplies  of  postage-stamps  and  stamped  envelopes ;  the 
preparation  of  letters  or  circulars  to  postmasters,  requiring  the 
prompt  rendition  of  accounts,  and  of  the  various  reports  of 
amounts  suhject  to  drafts;  the  supervision  and  management  of 
the  Dead  Letters,  and  of  their  contents,  and  of  all  correspon- 
dence in  relation  thereto  ;  the  furnishing  of  postage-stamps  and 
stamped  envelopes  to  postmasters,  and  the  preparation  of  all  esti- 
mates of  receipts  and  expenditures  of  the  Department.  His 
salary,  $H,000. 

One  Principal  Clerk  (salary  ^1,800),  assists  the  Head  of  Bu- 
reau in  the  general  supervision  and  arrangement  of  the  financial 
business  of  the  Department,  and  keeps  a  summary  cash  account 
with  the  Treasurer  of  the  United  States,  and  the  Assistant  Trea- 
surer, and  records  the  sums  subject  to  the  warrant  of  the  Post- 
master-General, together  with  the  designation,  upon  the  reports 
of  tlie  Auditor,  of  sums  due  to  persons  by  the  Department  on 
accounts,  for  the  payment  of  which  appropriation  has  been  made, 
and  the  funds  actually  in  the  Treasury  to  make  said  payments. 

One  clerk,  salary  ^l,tJOO,  issues  all  warrants  in  payment  of 
balances,  taking  a  full  description  of  each  one,  in  margin,  of  the 
"  warrant  register."  The  number  of  warrants  issued  during  the 
fiscal  year  ending  June  oOth,  1860,  was  9,606. 

One  clerk,  salary  $1,600,  keeps  a  summary  cash  account  with 
all  of  the  draft-officers  (8-12  in  number),  obtaining  from  them 
monthly  or  quarterly  statements  of  the  amount  subject  to  draft, 
and  noting  upon  the  Auditor's  reports  of  balances  due  by  the  De- 
partment, the  name  of  the  post-office  and  postmaster  upon  whom 
the  dratts  on  which  are  to  be  issued,  taking  care  to  ascertain  the 


most  convenient  draft  office  to  the  residence  of  the  contractors  or 
other  persons  to  be  paid,  and,  at  the  same  time,  to  avoid  an  ac- 
cumulation of  money  at  any  oOice. 

One  clerk  (salary  $1400)  keeps  a  summary  cash  account  with 
all  offices,  under  orders  to  deposit  (juarterly,  or  oftener,  their 
revenues  with  some  depositary,  or  in  the  Treasury,  obtaining  from 
the  quarterly  returns  of  postmasters,  and  noting  the  balances  due 
to  the  Department  at  the  end  of  each  quarter,  and  obtaining  cer- 
tific;»tes  of  deposit  of  a  like  sum  ;  and,  in  the  event  of  failures  to 
deposit,  to  correspond  with  postmasters  in  relation  thereto,  and, 
if  satisfactory  answers  are  not  obtained,  to  prepare  a  report  of 
the  delinquency  for  the  action  of  the  Appointment  Officer. 

One  clerk  (salary  $1400)  keeps  a  register  containing  the 
names  of  all  contractors  for  transportation  of  the  mails — the 
number  of  each  route,  and  the  amounts  of  contract  pay  per  quar- 
ter— records  therein  all  orders  of  the  rostmaster-Gencral  aflL-ct- 
ing  the  pay,  and  making  a  careful  comparison  of  the  Auditor's 
report,  presenting  the  quarterly  adjustment  of  the  contractors' 
accounts,  with  the  entries  in  his  register,  and,  if  found  correct, 
to  make  a  note  to  indicate  that  the  report  of  the  Auditor  has 
been  received,  compared,  examined  and  delivered  to  the  "Draft" 
or  Warrant  Clerk  for  paymf^nt. 

One  clerk  (salary  §1400)  records  all  letters  written  by  the 
Finance  Bureau. 


DEAD    LETTER    DIVISION. 

One  clerk  (salary  $1600)  receives  all  foreign  dead  letters,  and 
makes  full  accounts  of  the  postage  unpaid  thereon,  or  charged  to 
the  Foreign  or  Home  Government,  and  prepares  accurate  copies 
thereof  for  transmission,  together  with  the  letters  unopened,  to 
the  government  from  whence  they  come,  in  order  that  the  proper 
credits  and  debits  may  be  made  in  the  postal  accounts  under  the 
various  postal  treaties. 

Three  clerks  (salaries  $1200)  are  employed  in  receiving  and 
opening  the  quarterly  returns  of  postmasters,  which  are  com- 
posed of  the  account-current,  &c.,  as  fully  set  forth  in  chapters 
No.  19,  20  and  21,  of  the  regulations.  The  accounts-current  are 
handed  by  them  to 

One  clerk  (salary  $1200),  who  records,  in  books^fprepared  for 
the  purpose,  the  balance  due  to  the  United  States,  as  exhibited 
by  the  postmasters,  at  all  offices,  from  the  letter  A  to  L,  inclu- 
sive ;  and  to 

One  clerk  (salary'  $1200),  who  discharges  the  same  duty  in  re- 
lation to  all  offices  embraced  between  the  letter  M  and  Z,  inclu- 
sive. 


It  is  the  duty  of  these  clerks  to  make  a  careful  comparison, 
quarterly,  with  the  "receiving"  books  of  the  Auditor,  in  order 
to  ascertain  whether  any  accounts  had  passed  to  the  Auditor 
witnout  being  noted  in  the  Department,  and  then  they  call  upon 
all  postmasters,  from  whom  accounts  have  not  been  received,  to 
render  them  at  once,  and,  in  the  event  of  failure  to  p'omptly 
comply  with  the  demand,  to  make  a  report  of  the  delinquents  to 
the  Appointment  Office. 

The  quarterly  accounts  are  then  passed  to 

Two  clerks  (salary  $1400  each),  who  separate  the  ''^  dead  let- 
ters" and  compare  them  with  the  "dead  letter  post  bill,"  in  order 
to  determine  the  correctness  thereof,  and  to  note  thereon  the 
amount  of  unpaid  postage  charged  to  the  postmaster,  and  for 
which  he  claims  credit  as  uncollected. 

The  quarterly  returns  are  then  delivered  by  messengers  to  the 
Receiving  Clerks  of  the  Auditor's  office  for  the  Post-Office  De- 
partment. 

The  "dead  letters,"  with  the  exception  of  those  from  foreign 
governments,  are  delivered  to 

Seven  clerks,  one  clerk  (salary  $1400),  four  clerks  (salaries 
$1200  each),  two  clerks,  temporary,  ($600  each),  who  open  them 
and  lay  aside  all  which  contain  valuables  or  valuable  papers,  re- 
cords, court  papers,  bills  of  exchange,  &c.  &c.,  all  of  which  are 
then  delivered  to 

One  clerk  (salary  $1600),  and  one  clerk  (salary  $  ),  who 
register  in  suitable  books  all  letters  containing  m  >ney,  and  who 
also  use  all  diligence  to  restore  the  funds,  and  other  valuables,  to 
the  owners  thereof. 

Two  clerks  (salaries  $1400  and  $1200)  conduct  the  corres- 
pondence in  relation  to  dead  letters  of  importance. 

Two  clerks  (salaries  $1400)  conduct  the  correspondence  in  re- 
lation to  letters  containing  daguerreotypes  and  jewelry. 

Three  clerks  (salaries  $1200  each)  open  and  correspond  in  re- 
lation to  letters  held  for  postage  or  illegible  direction,  or  misdi- 
rection. 

POSTAGE    STAMPS    AND    STAMPED    ENVELOPE    DIVISION. 

One  clerk  (salary  $1200)  receives  the  daily  orders  of  postmas- 
ters for  supplies  of  stamps  and  envelopes,  and  make  an  examina- 
tion of  the  revenues  of  the  office  ordering  supplies,  and  the 
amount  on  hand  at  the  end  of  the  preceding  quarter,  &c.,  with  a 
view  to  preventing  improper  demands  for  stamps,  and  the  im- 
proper sale  of  them  by  postmasters.  After  the  proper  exami- 
nation has  been  made,  the  number  and  variety  of  stamps  and 
envelopes  ordered  is  marked  prominently  at  the  foot  of  the  or- 
der, and  then  it  is  passed  to 


One  clerk  (salary  $1400),  who  copies  the  order  on  sheets  pre- 
pared, for  the  purpose  of  enubliiif^  the  contractor  for  furnishing 
stamps  and  envelopes  to  determine  the  amount,  number  and 
rates  ordered  for  each  office. 

Letter-press  copies  of  these  sheets  are  then  made,  and  the 
orij^inai  is  signed  by  the  Finance  Officer  and  transmitted  to  the 
contractor. 

Each  order  is  entered  in  ledgers  arranged  in  alphabetical  or- 
der, so  as  to  show  the  amount  sent  to  each  office  quarterly. 
These  ledgers  are  kept  by 

Four  clerks  (salaries  31-00  each),  and,  at  the  end  of  each 
quarter,  all  of  the  receipts  for  supplies  are  entered  in  the  appro- 
priate column;  and,  if  receipts  have  not  been  received,  "dufili- 
cates"  are  sent  to  be  signed  and  returned,  and  then  the  leHgera 
and  vouchers  are  delivered  to  the  Stamp  Clerks  of  the  Auditor's 
office,  in  order  that  the  proper  entries  may  be  made  in  the  ac- 
counts of  postmasters,  and  the  vouchers  filed  with  the  quarterly 
returns  to  winch  they  pertain.  All  claims  for  stamps  and  en- 
velopes stated  to  have  been  destroyed,  or  not  received,  are  re- 
quired to  be  sustained  before  the  head  of  the  Finance  Office,  but 
claims  for  stamps  and  envelopes,  stated  to  have  been  stolen  or 
lost  after  their  receipt  by  the  postmaster,  are  rejected. 

The  daily  orders  are  half-bound  in  boards,  and  kept  in  chrono- 
logical order  for  reference. 

There  are  four  messengers  and  laborers  attached  to  the  Bu- 
reau. 

Total  number  of  clerks,  thirty-six;  and  messengers  and  labo- 
rers, four. 

FINANCE  BUREAU. 

PROPOSED     ORGANIZATION     OF     THE     FINANCE     BUREAU     OF     THE 
POST-OFFICE    DEPARTMENT    OF    THE    CONFEDERATE    STATES. 

Chief  of  Finance  Bureau  (salary  $         ). 

One  principal  clerk  (salary  $  ),  to  have  charge  of  the  de- 
pository accounts  and  draft  book. 

One  clerk  (salary  $  ),  to  take  charge  of  the  accounts  to 
Depositing  Officer,  and  to  issue  all  warrants  and  drafts. 

One  clerk  (salary  $  ),  to  keep  the  register  of  contrac- 
tors' pay,  and  the  letter  book  of  the  Bureau. 

DEAD    LETTER    DIVISION. 

Two  clerks  (salary  $  ),  to  open  accounts,  and  enter  the 
quarterly  proceeds. 


31 

One  clerk  (salary  $  ),  to  separate  the  dead  letters  from  the 
returns,  and  to  brin^  together  the  miscellaneous  parts  of  quar- 
terly returns,  &c.  &c. 

Two  clerks  ^salary  $         each),  to  open  dead  letters. 

One  clerk  to  open  letters  held  for  postage,  illegible  direction, 
and  misdirection,  and  to  send  out  and  correspond  in  relation  to 
money  letters. 

Two  clerks  to  correspond  in  relation  to  dead  letters,  and  letters 
containing  daguerreotypes  and  jewelry. 


STAMP   DIVISION. 

The  orders  for  stamps  and  envelopes  are  to  be  attended  to  by 
the  Chief  of  the  Bureau. 

One  clerk  to  copy  the  orders  for  stamps  and  stamped  en- 
velopes, and  enter  the  duplicates  in  the  stamp  ledgers  ;  and 

One  clerk  to  enter  the  receipts  of  stamps  and  envelopes,  and 
call  for  the  missing  vouchers,  and  attend  to  other  miscellaneous 
matters  connected  with  the  division. 

Thirteen  clerks. 

One  messenger  (salary  $         ). 


•v. 
AUDITOR'S  OFFICE. 

WITH  DETAILED  STATEMENTS  OF  ITS  ORGANIZATION  AS  IT  EX- 
ISTS AT  WASHINGTON,  AND  EXHIBIT  OF  ITS  PRINCIPAL  DU- 
TIES. 

This  Bureau  was  established  by  an  act  approved  2nd  July, 
1830  (U.  S.  Laws,  vol.  4,  p.  80),  the  8th  section  of  which  pro- 
vides for  the  appointment  of  an  Auditor  (at  an  annual  salary,  of 
$3000),  whose  duty  it  shall  be  to  receive  all  accounts  arising  in 
the  Post-Office  Department,  or  relative  tliereto,  to  audit  and  set- 
tle the  same,  and  certify  their  balances  to  the  Postmaster-Gen- 
eral ;  provided  that,  if  either  the  Postmaster-General,  or  any 
person  whose  account  shall  be  settled,  be  dissatisfied  therewith, 
he  may,  within  twelve  months,  appeal  to  the  First  Comptroller  of 
the  Treasury,  whose  decision  shall  be  final  and  conclusive. 

The  said  Auditor  shall  report  to  the  Postmaster-General,  when 
required,  the  official  forms  of  papers  to  be  used  by  postmasters, 
and  other  officers  or  agents  concerned  in  its  receipts  and  pay- 
ments, and  the  manner  and  form  of  keeping  and  stating  its  ac- 
counts.    He  shall  keep  and  preserve  all  accounts  with  the  vouch- 


82 

ers,  after  settlement.  lie  ahall  promptly  report  to  the  Postmas- 
ter-General all  delinquencies  of  postmasters  in  payinfj  over  the 
proceeds  of  their  ofhce?.  lie  shall  close  the  accoutits  quarterly, 
and  transmit  to  the  Secretary  of  the  Treasury  qy,iirterly  f^tate- 
ments  of  its  receipts  and  expenditures.  He  shall  register,  charge 
and  countersign  all  warrants  upon  the  Treasury  for  receipts  and 
payments  issued  by  the  Postmaster-General,  and  when  warranted 
by  law.  lie  shall  perform  such  other  duties  in  relation  to  the 
financial. concerns  of  the  Department,  as  shall  be  assigned  to 
him  by  the  Secretary  of  the  Treasury,  and  shall  make  to  them 
respectively  such  reports  as  either  of  them  may  require  respect- 
ing the  same. 

The  10th  section  provides  "That  the  Auditor  shall  state  and 
certify  quarterly  to  the  Postmaster-General,  accounts  of  the  mo- 
neys paid  pursuant  to  appropriations,  in  each  year,  by  postmas- 
ters, out  of  the  proceeds  of  tieir  offices,  towards  the  expenses  of 
the  Department,  under  each  of  the  heads  of  the  said  expenses 
specified  in  the  second  section  of  this  act,  upon  which  the  i'ost- 
master-General  shall  issue  warrants  to  the  Treasurer  of  the 
United  States,  as  in  case  of  the  receipt  and  payment  of  the  said 
moneys  into  and  out  of  the  Treasury,  in  order  that  the  same  may 
be  carried  to  the  credit  and  debit  of  the  appropriation  for  the 
service  of  the  Post-Oflice  Department  on  the  books  of  the  Audi- 
tor for  said  Department." 

The  ilth  section  provides  "  That  the  Postmaster-General  shall, 
within  sixty  days  after  the  making  of  any  contract,  cause  a  du[)li- 
cate  thereof  to  be  lodged  in  the  office  of  the  Auditor  of  the  Post- 
Office  Department.  Upon  the  deatii,  resignation  or  removal  of 
any  postmaster,  he  shall  cause  his  bond  of  office  to  be  delivered 
to  the  said  Auditor;  and  shall  also  cause  to  be  promptly  certified 
to  him  all  establishments  and  discontinuances  of  post-offices,  and 
all  appointments,  deaths,  resignations  and  removals  of  postmas- 
ters, together  with  all  orders  and  regulations  which  may  origi- 
nate a  claim,  or  in  any  manner  afifoct  the  accounts  of  the  De- 
partment." 

The  14th  section  provides  that  "  The  Auditor  for  the  Post- 
Office  Department  siiall  superintend  the  collection  of  all  debts 
due  to  the  Department,  and  all  penalties  and  forfeitures  imposed 
on  postmasters  for  failing  to  make  returns  or  pay  over  the  pro- 
ceeds of  their  offices ;  he  shall  direct  suits  and  legal  proceedings, 
and  take  all  such  measures  as  may  be  authorized  by  law,  to  en- 
force the  prompt  payment  of  moneys  due  to  the  Department." 

It  will  be  seen,  by  these  provisions  of  the  law  of  ISiiB,  that 
the  Auditor  discharges  the  various  duties,  and  possesses  the  same 
powers  which,  in  the  other  departments  of  the  government,  de- 
volve upon  an  Auditor,  Comptroller,  Register,  and  Solicitor,  and 
constitute  his  Bureau  one  of  the  most  important  and  responsible. 


*  83 

The  clerical  force  of  this  office  numbers  118  (one  hundred  and 
eighteen),  and  is  arranged  into  six  divisions,  styled  tlie  Exam- 
iners, Registers,  Book-Keepers,  Pay-Collecting  and  Miscel- 
laneous. 

One  Chief  Clerk  (salary  S2000)  conducts  the  suits  and  corres- 
pondence with  the  United  States  District  Attorneys  and  Mar- 
shals, and  is  charged  with  the  general  supervision  of  the  business 
of  the  office. 

Six  clerks  receive  the  ledgers  from  the  Finance  Office,  which 
present  the  quarterly  accounts  of  postage-stamps  and  stamped 
envelopes  furnished  to  postmasters,  and  transcribe  the  various 
items  into  suitable  books,  for  the  purpose  of  entering  these  suras 
upon  the  accounts-current  of  the  postmasters,  as  they  receive 
them  from  the  "Finance  Office,"  as  rapidly  as  they  are  opened 
and  delivered  to  thorn.  After  the  proper  entries  have  been  made 
by  tiiese  clerks,  the  accounts  are  then  delivered  to  the  Examin- 
ers Division.  Thirty-seven  clerks  are  employed  in  the  exami- 
nation of  the  quarterly  returns  of  postmasters,  and,  as  rapidly 
as  they  complete  their  adjustment,  the  accounts  are  delivered  to 
the  Registers'  Division. 

Twelve  clerks  register  in  books  prepared  to  exhibit  analyti- 
ically  the  various  items  of  postal  revenue  and  expenditures  by 
postmasters,  and  deliver  to 

Four  "Error  Clerks,"  all  accounts  in  which,  by  the  correc- 
tions made  by  the  Examiners,  the  balance  due  to  the  United 
States  have  been  increased  more  than  fifty  cents.  Carefully  pre- 
pared copies  of  these  accounts,  as  rendered  to  the  Department, 
and  as  audited,  are  furnished  to  the  postmasters  who  committed 
the  errors,  accompanied  by  suitable  instructions  to  prevent  a  re- 
currence of  errors. 

The  registers,  when  completed,  are  delivered  to  the  Book- 
Keepers    Division. 

Thirteen  clerks  are  employed  in  this  division,  the  principal 
book-keeper  being  charged  with  the  adjustment  of  the  general 
accounts  of  the  Department  and  of  the  appropriation  ledgers. 
Nine  of  the  clerks  have  charge  of  the  ledgers  containing  the 
general  accounts  of  postmasters  ;  and  three  clerks  of  those  con- 
taining the  accounts  of  mail  contractors^  route  agents  and  spe- 
cial agents. 

TAY    DIVISION. 

Thirteen  clerks  are  engaged  in  the  adjustment  of  the  accounts 
of  mail  contractors  and  route  agents.  These  accounts  are  kept 
in  books  so  arranged  as  to  exhibit  the  names  of  the  contractor 
and  ids  pay  per  quarter;  the  names  of  the  several  post-offices 
and  postmasters  on  each  route,  and  the  amounts  and  dates  of  all 
5 


84 

paTTiicnt55  made  by  postraastcrs  to  the  contractors  at  the  end  of 
each  quarter,  upon  what  are  styled  "Collection  Orders,"  which 
are  sent  to  contractors  at  the  close  of  each  quarter,  upon  such 
oflRces  upon  their  respective  routes  as  can  pay  these  orders  their 
entire  balanco  due  to  the  United  States  without  the  probability  of 
overpavinji;  the  contractor.  These  payments  being  made  for  the 
pums  acknowledged  by  the  postmasters  to  be  due  to  the  United 
States,  in  advance,  in  many  cases,  of  the  receipt  by  the  Depart- 
ment of  the  account  of  the  postmaster,  and  from  sixty  to  ninety 
days  before  the  period  fixed  by  the  contracts  for  auditing  and 
paving  the  contractors'  accounts,  serves  the  double  pur|)osc  of 
enabling  the  contractor  to  receive  a  considerable  portion  of  his 
earnings  at  the  termination  of  each  quarter,  and  relieves  the  post- 
masters of  the  care  and  responsibility  of  the  custody  of  the  rev- 
enues of  the  government,  and  at  the  same  time  removes  the 
temptation  to  misapply  them  to  their  private  use. 

The  Department  realizes  about  one-third  of  its  revenues  in  this 
manner. 

Ten  clerks  are  employed  in  the  "  MisceUaneous  Division,'* 
four  of  whom  audit  the  accounts  of  the  payments  made  by  ape- 
cial  iind  ^^  mail  niessenger"  post-offices  for  the  transportation  of 
the  mails  to  this  class  of  offices. 

Two  clerks  examine  and  enter  in  the  Warrant  and  Draft 
Registers  all  warrants  and  drafts  issued  by  the  Postmaster-Gen- 
eral, and  keep  books  exhibiting  the  amounts  paid  into  the  Trea- 
sury by  postmasters,  under  orders  of  the  Postmastcr-GeneTal  to 
deposit  their  revenues  with  the  Treasurer  and  Assistant  Trea- 
surers. 

Two  Letter-book  Clerks  are  attached  to  this  Division,  who  re- 
cord all  letters  issued  by  the  office  ;  and  one  clerk  gives  special 
attention  to  reviewing  and  paying  the  accounts  of  late  postmas- 
ters, who  have  balances  apparently  due  them  by  the  government. 
One  clerk  keeps  alphabetical  and  chronological  registers  of  the 
names  of  postmasters,  whose  terms  of  office  have  terminated, 
■which  registers  exhibit  all  proceedings  had  in  closing  the  ac- 
counts, and  form  an  index  by  which  any  account  can  be  obtained 
from  the  files  without  difficulty. 

The  Collecting  Division  gives  employment  to  twenty-two 
clerks,  ^vc  of  whom  correspond  in  relation  to  all  items  of  contro- 
versy between  late,  and  present,  postmasters  and  the  Depart- 
ment; and  nine  clerks  prepare  statements  of  accounts  from  the 
ledgers,  copies  of  which  are  furnished,  as  required,  by  three 
clerks :  one  clerk  issues  the  drafts  for  collection  of  balances  due 
to  the  United  States,  and  otic  clerk  has  charge  of  all  the  files  of 
papers  and  accounts ;  and  one  clerk  audits  and  pays  all  accounts 
for  advertising  and  miscellaneous  expenses,  and  of  special  agents; 
and  two  clerks  audit  the  accounts  between  the  United  States  and 


85 

Foreign  Governments  under  postal  treaties.  One  of  these  clerks 
also  disburses  the  suras  nppropriated  for  the  payment  of  salaries, 
and  contingent  expenses  of  the  office. 

Total  number  employed  at  Washington,  118. 


Salaries  of  Clerks. 

One  Chief  Clerk,  -  -  -  $2000 

One  Disbursing  Clerk,  who  also  adjusts  the  Foreign  postal 

accounts,          ...                 -  2000 

Five  clerks,         -                 -                 -            •    -         .  1800 

Twenty-five  clerks,              ...  1600 

Fifty-five  clerks,                   -                 -                 -  1400 

Twenty-seven  clerks,            ...  1200 

Four  clerks  transferred  from  other  Bureaus,       -  1200 

One  messenger,  salary,        _                 -                 -  840 

One  assistant,          "              -                  -                  -  700 

Nino  laborers,          "              -                  -                  -  600 
(Of  whom  five  act  as  messengers.) 


PROPOSED  ORGANIZATION  OF  THE  OFFICE  OF  THE  AUDITOR  OF 
THE  TREASURY  FOR  THE  POST-OFFICE  DEPARTMENT  OF  THE 
CONFEDERATE    STATES. 

An  Auditor  for  the  Post-Ofiice  Department,  salary  $3000. 

One  Chief  Clerk  to  supervise  the  business  of  the  ofiice,  and 
conduct  all  suits  and  legal  proceedings :  salary  §1500. 

Three  clerks  to  keep  the  postage-stamps  and  stamped  en- 
velopes account  with  postmasters,  and  receive  the  accounts-cur- 
rent, compare  the  postage-stamp  entries,  and  pass  the  quarterly 
''returns"  to  the  Examiners:  salary  § 

Seven  clerks  to  examine  and  audit  the  "quarterly  returns  "  of 
postmasters,  and  prepare  the  notices  of  errors  discovered  :   $ 

Three  clerks  to  register  analytically  the  quarterly  postal  re- 
ceipts and  expenditures  by  postmasters:  $ 

One  clerk  to  record  the  warrants  and  drafts  issued,  and  to 
keep  the  cash  books  of  office:  (salary)  $ 

Three  clerks  to  keep  the  letlgers  containing  the  accounts  of 
postmasters,  contractors  and  others  :  (salary)  $ 

Three  clerks  to  prepare  statements  of  the  accounts  from  the 
ledgers,  and  furnish  copies  thereof  to  postmasters  :  salary  $ 

Two  clerks  to  conduct  the  correspondence  between  the  office 
and  postmasters  in  relation  to  disputed  items  of  accounts  in  pro- 
cess of  adjustment,  and  collection  of  sums  due  to  the  Confederate 
States  :  salary  §         ^ 


36 

One  clerk  to  issue  the  "  Collection  Drafts"  and  keep  the  al- 
phabetical, chronological  and  geographical  indexes  to  changes 
of  post-offices  and  postmasters  :  salary  $ 

Four  clerks  to  au<lit  and  report  to  the  Postmaster-General,  for 
payment,  all  accounts  of  mail-contractors  and  route-agents  : 
salary  3 

One  clerk  to  record  the  letters  written  by  the  Office,  au'l  to 
audit  and  report  for  payment,  the  miscellaneous  accounts:  sala- 
ry $ 

One  messenger  :  salary  3 

One  laborer  :  salary  $ 

Total  number  of  clerks,  29. 


ArPENDIX  B. 


Post-Office  Department,  \ 

Montgomery^  April  23c^,  1861.  j 

Hon.  John  R.  Reagnn^  Postmaster-General : 

Sir  :  In  compliance  with  your  verbal  request,  I  have  the  honor 
to  present  the  Ibllowing  brief  statement  of  the  condition  of  the 
Appointment  Bureau  of  this  Department: 

I  received  my  appointment  on  the  22d  of  March  last,  and  at 
once  engaged  in  tbe  preparation  of  the  books,  blanks  and  circu- 
lar-letters required  for  the  prompt  discharge  of  the  duties  of 
this  Bureau,  as  soon  as  the  Department  shall  assume  the  control 
of  the  postal  affairs  of  the  Confederate  States.  The  proper 
books  are  fully  prepared,  and  the  blanks  and  circular-letters  are 
required,  by  contract,  to  be  delivered  at  this  Department  on  or 
before  the  28th  instant. 

Advertisements  for  proposals  for  furnishing  the  necessary 
blanks  for  the  use  of  the  post-offices,  were  prepared  and  issued 
by  the  Contract  Bureau  on  the  28th  ultimo  ;  and  I  have  no  doubt 
that  this  division  of  the  Department  will  be  fully  prepared  to 
discharge  the  various  duties  assigned  thereto  within  a  brief  period 
of  time.  The  numerous  letters  of  inquiry,  addressed  to  this 
branch  of  the  Department,  have  been  piomptly  attended  to,  and 
I  have  procured  the  necessary  books  and  circulars  for  the  use  of 
the  Inspection  Office,  which,  for  the  present,  will  be  under  my 
direction.  % 


37 

The  plan  submitted  by  the  Chief  of  the  Contract  Bureau  for 
the  organization  of  the  clerical  force  of  this  Bureau,  and  the  In- 
spection oflSce,  I  believe  to  be  essential  to  the  successful  discharge 
of  the  duties  assigned  thereto. 

I  have  the  honor  to  be, 

Very  respectfully, 

B.  N.  CLEMENTS, 

Chief  of  the  Appointment  Bureau. 


APPENDIX  C. 


Post-Office  Department,'! 

Finance  Bureau,  > 

Montgomery,  April  23d,  1861.  j 

Sir:  Since  my  appointment,  April  5th,  1861,  as  Chief  of  the 
Finance  Bureau,  its  thorough  organization  has  been  nearly  per- 
fected. Prior  to  my  instalment  into  office,  the  Chief  of  the  Con- 
tract Bureau  had  published  proposals  for  furnishing  the  Depart- 
ment with  stamps  and  stamped  envelopes.  The  bids  for  these 
contracts  will  be  opened  on  the  first  day  of  May.  All  the  neces- 
sary books  have  been  procured  and  are  now  ready  for  use.  In  a 
very  short  time,  a  manufacturer  will  submit  to  me  a  design  for 
the  warrants  and  drafts  to  be  used  by  the  Bureau,  together  with 
proposals  for  furnishing  the  same.  As  soon  as  these  stamps, 
stamped-envelopes,  warrants  and  drafts  are  procured,  this  Bureau 
will  be  fully  prepared  to  discharge  its  duties. 

Very  respectfully, 

JOHN  L.  HARRELL, 

Chief  of  Finance  Bureau. 

To  Hon.  J.  II.  Reagan,  Postmaster- General. 


HB 


APrENDIX  D. 


CIRCULAR  LETTER, 
No.  2. 


Post-Office  Department,      \ 
Montgomery, ,  1861.  j 


Sir  :  The  Government  of  the  Confederate  States  will  not  in- 
terfere with  any  existing  contracts,  entered  into  between  the 
Government  of  the  United  States  and  the  present  contractors, 
until  it  assumes  the  entire  control  of  its  postal  affairs.  This 
course  is  rendered  necessary  by  the  utter  impracticability  of 
mixing  the  employees  of  the  two  governments  in  the  same 
service. 

The  question  as  to  whether  the  Government  of  the  Confede- 
rate States  will  assume  any  liability  to  present  contractors  before 
it  assumes  the  control  of  our  postal  affairs,  involves  the  idea  of 
liability,  on  the  part  of  this  Government,  for  the  obligations  of 
the  United  States,  which  cannot  be  entertained  by  this  Depart- 
ment. But  if  the  Government  of  the  United  States  should 
abandon  the  mail-service  in  the  Confe<lerato  States  before  the 
Department  shall  be  organized  and  ready  to  enter  into  new  con- 
tracts, I  am  authorized  to  continue  existing  contracts  provision- 
a-lly?  by  proclamation,  until  new  contracts  can  be  entered  into. 

Very  respectfully, 

JOHN  H.  REAGAN, 
Postmaster-General. 


89 


APPENDIX  E. 


CIRCULAR  LETTER, 

No.  3. 


Post- Office  Department 
Montgomery,  — 


:ent,     \ 
,  1861.  j 


Sir  :  All  postmasters  and  other  employees  in  the  postal-ser- 
vice are  directed  to  continue  the  performance  of  their  respective 
duties  as  such,  and  render  all  their  accounts,  and  pay  all  moneys 
to  the  order  of  the  Government  of  the  United  States,  as  they 
have  heretofore  done,  until  the  Government  of  the  Confederate 
States  shall  be  prepared  to  assume  the  entire  control  of  its  postal 
affairs. 

The  Congress  of  the  Confederate  States  has,  by  an  Act,  ap- 
proved March  15th,  1861,  provided  "  that  the  Postmaster- 
General  shall  have  power  to  issue  circular-instructions  to  the 
several  postmasters  and  other  officers  still  performing  service 
under  the  appointment  of  the  United  States,  in  order  to  enforce 
the  rendition  of  the  proper  accounts  and  payment  of  the  moneys 
collected  by  them  per  account  of  the  United  States,  until  the 
Postmaster-General  shall  have  issued  his  proclamation  announc- 
ing that  the  former  service  is  discontinued  and  is  replaced  by  the 
new  service  organized  under  the  authority  of  this  Government." 
In  order  that  you  may  be  enabled  to  comply  strictly  with  the 
foregoing  direction,  issued  in  conformity  with  the  authority  con- 
ferred by  said  Act,  your  attention  is  specially  directed  to  the 
Regulations  of  the  Post-Office  Department  of  the  United  States, 
embraced  in  chapters  19,  20,  21,  22,  23  and  26,  of  the  volume 
of  laws  and  regulations  issued  15th  May,  1859. 

The  Post-Office  Department  of  the  Confederate  States  will  be 
organized  as  soon  as  practicable,  but  the  causes  of  delay  incident 
to  its  organization,  are  such  as  to  place  it  out  of  my  power  to 
determine  definitely  when  the  new  service  will  be  substituted  for 
the  old. 

Any  attempt  to  mix  the  employees  of  the  two  governments  in 
ihe  same  service  would  be  wholly  impracticable  ;  and  no  removals 
or  appointments  of  postmasters  or  others  in  the  postal-service 
will  be  made  by  this  Department,  nor  will  it  receive  returns  re- 
'ating  to,  or  moneys  derived  from,  the  postal-service,  until  it  shall 
assume  the  entire  control  of  the  service. 


4() 

If  the  Government  of  the  United  States  should  cease  to  carry 
on  this  service  before  this  Department  shall  be  oriranized  and 
prepared  to  take  charge  of  it,  no  great  shock  to  the  public  inter- 
ests will  be  jtroduced  by  such  a  course,  as  the  rostmastcr-CJcneral 
is  authorized  to  continue  provisionally,  by  proclamation,  the  pre- 
sent postmasters  and  others  in  the  postal-service  in  oflice,  and  to 
continue  existing  contracts  for  carrying  the  mails  until  new  ap- 
pointments and  new  contracts  can  be  made. 

AVc  must  regard  the  carrying  of  our  mails  nt  this  time  by  that 
Government,  as  a  great  public  necessity  to  the  people  of  both 
governments,  resulting  from  their  pa^  intimate  political,  com- 
mercial and  social  relations,  and  alike  important  to  tlie  preserva- 
tion of  the  present  interests  of  the  people  of  both  countries ; 
and,  whilo  that  Government,  by  its  action,  consults  such  con- 
siderations, our  Government  and  people  should  act  with  the  same 
high  regard  for  great  public  interests.  Such  a  course  on  our 
part,  springing  from  such  motives,  will  preserve  the  character  of 
our  people,  without  impairing  the  dignity  of  our  Government, 
and  may  lead  to  the  transfer  of  our  postal-service  from  the  con- 
trol of  the  old,  to  that  of  the  new  government,  with  far  less  in- 
jury to  the  people  of  both,  than  would  necessarily  flow  from  pre- 
cipitate and  inconsiderate  action  on  the  part  of  cither. 

You  will  please  acknowledge  the  receipt  of  this  circular. 

I  am,  very  respectfully, 

Your  obedient  servant, 

JOHN  11.  IIEAGAN, 
Postmaster-  General. 

To ,  Esq.,  Poatmaster  at  . 


Appendix  F,  which  is  a  tabular  exhibit  of  the  post-routes 
which  did  not  pay  one-third  of  their  cost,  is  omitted,  because  it 
is  very  voluminous  and  would  not  be  of  sufficient  general  interest 
to  justify  its  publication. 


'\, 


APPENDIX  G. 


The  names  of  the  gentlemen  composing  a  Convention  of  Presi- 
dents and  others,  representing  Railroad  Companies,  assembled 
at  Montgomery,  Alabama,  at  the  request  of  the  Postmaster- 
General,  on  the  26th  day  of  April,  1861,  vrith  the  titles  of 
the  Companies  represented : 

NAMES.  TITLES    OF    COMPANIES. 

Wm.  C.  Smedes Southern  Railroad  Co. 

Samuel  Tate Memphis  and  Charleston  R.  R.  Co. 

Charles  T.  Pollard Montgomery  and  West  Point  R.  R.  Co.,  and  Alabama 

and  Florida  R   R.  Co. 
John  P.  King Georgia  R.  R.  and  Banking  Co.,  Atlanta- and  West  Point 

R.  R.  Co. 
R.  R.  Cuyler The  Central  R.  R.  and   Banking  Co.  of  Georgia  and 

Branch  to  Eatonton,  and  the  South-western  R.  R. 

Company. 

John  Caldwell South  Carolina  R.  R.  Co. 

Isaac  Scott Macon  and  Western  R.  R.  Co.,  Upsom  Co.  R.  R.  Co. 

Francis  T.  Willis Augusta  and  Savannah  R.  R.  Co. 

Thomas  C.  Perrin.  Greenville  and  Columbia  R.  R.  Co. 

Allan  Macfarlan Cheraw  and  Darlington  R.  R.  Co. 

L.  J  Fleming Mobile  and  Ohio  R.  R.  Co. 

Wm.  Johnston Charlotte  and  South  Carolina  R.  R.  Co. 

Charles  T.  Fisher North  Carolina  R.  R.  Co. 

A.  M.  Powell West  North  Carolina  R.  R.  Co. 

Wm.  H.  Mitchell ...Mobile  and  Girard  R.  R.  Co. 

John  W.  Simpson Laurens  South  Carolina  R.  R.  Co. 

Wm.  H.  Chase Als^ama  and  Florida  R.  R.  Co.  of  Florida. 

Thomas  H.  Ilewes New  Orleans  Opelousas  and  Great  Westera  R.  R.  Co. 

Alex.  M.  Clayton .Miss.  Central  R.  R.  Co. 

Geo.  W.  Call Florida  R.  R.  Co. 

A.  F.  Revenel North  Eastern  R.  R.  Co.  * 

W.  S.  Cothron Rome  R.  R.  Co. 

G.  G.  Griffin Alabama  and  Mississippi  R.  R.  Co. 

Thomas  F.  Drayton Charleston  and  Savannah  R.  R.  Co. 

Thomas  A.  Walker Alabama  and  Tennessee  River  R.  R.  Co. 

Richard  Peters Georgia  Western  R.  R.  Co. 

Daniel  Cram Montgomery  and  West  Point  R.  R.  Co. 

Thomas  D.  Walker Wilmington  and  Manchester  R.  R.  Co. 

W.  S.  Ashe Wilmington  and  Weldon  R.  R.  Co. 

Samuel  J.  Jones Alabama  and  Florida  R.  R.  of  Alabama,  as  Supt. 

J.  L.  Mustian Muscogee  R.  R.  Co. 


42 


APPENDIX  11. 


ROUTES   UPON   WHICH    DOUBLE   DAILY   SERVICE   IS    PERFORMED, 
AND    RATE    OF    MAIL    PAY    PER    MILE. 

1.  Augusta  to  Atlanta $237  60 

2.  AtlntiWi  to  West  Point 237  60 

8.  Muntcomery  to    Columbus,  with    branch  from  Opelika   to  West 

Point 271   18 

4.  KingsTille  to  Wilmington 300  00 

6.  Kinpflville  to  Augusta 237  60 

C.   Kingsville  to  Columbia , 224  68 

7.  CbarlcBton  to  Florence 160  00 

$  1658  21 
Average  rate  per  mile $236  88 


ROUTES   UPON   WHICH    DAILY   SERVICE   IS    PERFORMED   AT   TWO 
HUNDRED    DOLLARS    AND    UPWARDS    PER    MILE. 

1.  Montgomery  to  Greenville $325  89 

2.  Memphis  to  Stephcnaon 200  00 

8.  Canton  to  Grand  Junction 200  00 

4.  New  Orleans  to  Canton 200  00 

5.  Algiers  to  Brasbear 200  00 

$  1125  89 
Average  rate  per  mile $225  18 


ROUTES  UPON  WHICH  DAILY  SERVICE  IS  PERFORMED  AT  LESS 
THAN  TWO,  AND  MORE  THAN  ONE,  HUNDRED  DOLLARS  PER 
MILE. 

1.  Savannah  to  Macon $175  00 

2.  Miltou  to  Augusta ..  175  00 

8.  Macon  to  Columbus 175  00 

4.  Atlanta  to  Chattanooga 102  50 

6.  Selma  to  Talladega,  6  times  per  •week 107   14 

6.  Grand  Junction 176  00 

$  909  G4 
Average  rate  per  mile $  161  60 


43 


ROUTES   WHICH  ARE   PAID   ONE   HUNDRED   DOLLARS   PER   MILE. 

1.  Macon  to  Atlanta  (daily) ~ $  100  00 

2.  Fort  Valley  to  Albany,  with  branch  from  Renwick  to  Cuthbert....  100  00 

3.  Milledgeville  to  Gordon 100  00 

4.  Branch  Camak  to  Warrenton.... 100  00 

6.  Fernandina  to  Branson 100  00 

6.  Mobile  to  Okalona  (6  times  a  week) 100  00 

7.  Grand  Gulf  to  Port  Gibson 100  00 

8.  Columbia  to  Charlotte  (G  times  a  week) 100  00 

9.  Columbia  to  Greenville  C.  H 100  00 

10.  Charleston  to  Bridge  Site 1(0  00 

$  1000  00 
Average  rate  per  mile $100  00 


ROUTES   WHICH   ARE    PAID    LESS    THAN    ONE   HUNDRED,  ANI> 
MORE    THAN   FIFTY,    DOLLARS    PER   MILE. 

1.  Kingston  to  Rome $58  31 

2.  Columbus  to  Union  Springs  (6  times  a  week) 85  70 

3.  Morton  to  Forrest  Depot 96  50 

4.  Memphis  to  Panola 75  00 

5.  Branch  from    Hodgesville   to   Abbyville,  (6  times  a  week),  and 

Branch  from  Balton  to  Anderson  C.  H 68  60 

6.  Chester  C.  H.  to  Yorkville 59  57 

7.  Harrisburg  to  Eagle  Lake 75  00 

$518  68 
Average  rate  per  mile $  74  09 


ROUTES   WHICH   ARE   PAID   FIFTY   DOLLARS   PER   MILE. 

1.  Savannah  to  Naylor «  50  oo 

2.  Barnesville  to  Thomaston  (6  times  a  week) 60  00 

3.  Milledgeville  to  Eatonton 50  oO 

4.  Double  Wills  to  Washington  (6  times  a  week) '. .''.  '  50  00 

5.  Union  Point  to  Athens 5O  oO 

6.  Etowah  to  Etowah  Depot ]  5O  00 

7.  St.  Marks  to  Tallahassee  (6  times  a  week) 50  00 

8.  Branch  from  Moscow  to  Summerville 50  00 

9.  Kingsville  to  Camden 50  00 

10.  Florence  to  Cheraw ','.'.'.  50  00 

11.  Aston  to  Spartanburg  C.  H.  (6  times  a  week) '.  60  00 

12.  Baton  Rouge  to  Bosedalc 50  oO 

$  600  00 


u 


ROUTES  WHICH  ARE  PAID  LESS  THAN  FIPTT  DOLLARS  PER  MILE. 

1.  Newberry  C.  II.  to  Lnurens  C.  H $48  38 

2.  St.  FranciBville  to  Woodville  (6  limes  a  week) 38  50 

8.  BruDewick  to  Satilla  (3  times  a  week) 30  00 

$  iir.  t<8 
Avernge  rate  per  mile... $  38  96 


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